January 2023
Oakland, California 94612
449 15th Street
Rincon Consultants, Inc.
prepared with the assistance of
Hayward, California 94541
777 B Street
Planning Division, Department of Development Services
City of Hayward
prepared by
(2023-2031)
Hayward Housing Element
Appendix B – Housing Needs Assessment
(5128-8323
ATTACHMENT VI
Table of Contents
i
Table of Contents
Housing Needs Assessment
............................................................................................................ 1 Population Characteristics
.................................................................................................. 1 Population Growth
............................................................................................. 1 Age Characteristics
.............................................................................................................. 2 Race and Ethnicity
............................................................................................................... 3 Economic Characteristics
.................................................................................................... 4 Employment
........................................................................................................ 4 Household Income
.............................................................................................. 6 Hou
sehold Characteristics
.................................................................................................. 9 Household Type and Size
.................................................................................... 9 Special Needs Groups
......................................................................................................
10 Seniors
.............................................................................................................
11 Persons with Physical and Developmental
Disabilities
...................................
12 Large Households
............................................................................................
15 Single-
Parent Households
................................................................................
16 Extremely Low
-
Income Households
................................................................
16 Farmworkers
....................................................................................................
17 Individuals Experiencing Homelessness
..........................................................
18 College Students
..............................................................................................
20 Housing Stock Characteristics
..........................................................................................
21 Housing Type
...................................................................................................
21 Tenure
..............................................................................................................
22 Vacancy
............................................................................................................
24 Housing Age and Condition
.............................................................................
24 Overcrowding
..................................................................................................
26 Housing Costs and Affordability
.......................................................................................
27 Home Values
....................................................................................................
27 Rental Costs
.....................................................................................................
28 Housing Affordability
.......................................................................................
29 Cost Burden
.....................................................................................................
30 Eviction
.............................................................................................................................
31 Affordable Housing
..........................................................................................................
32 Rent Stabilization Ordinance and Naturally Occurring Affordable Housing
....
32 Tenant
-
Based Rental Housing Assistance
........................................................
33 Publicly Assisted Rental Housing
.....................................................................
33 Preservati
on of At
-
Risk Housing
......................................................................
35 Preservation Options
.......................................................................................
35 Resources for Preserva
tion
..............................................................................
37 Hayward Housing Element
City of Hayward
2023-2031 Housing Element Update
ii
Tables
Table B-1 Population Growth ..............................................................................................................2 Table B-2 Age Characteristics ..............................................................................................................2 Table B-3 Race/Ethnicity .....................................................................................................................3 Table B-4 Major Employers in Hayward ..............................................................................................4 Table B-5 Employment Characteristics ...............................................................................................5 Table B-6 Mean Salary by Occupation – Alameda County ..................................................................6 Table B-7 Household Income by Tenure (2014-2018) ........................................................................7 Table B-8 Median Household Income (2015-2019) ............................................................................8 Table B-9 Household Characteristics ..................................................................................................9 Table B-10 Household Size by Type ................................................................................................... 10 Table B-11 Average Persons per Household by Jurisdiction .............................................................. 10 Table B-12 Special Needs Groups in Hayward ................................................................................... 11 Table B-13 Persons Aged 65 and Over ............................................................................................... 11 Table B-14 Disabilities Tallied in Hayward (2019) .............................................................................. 13 Table B-15 Persons with Developmental Disabilities Served by RCEB by Age Group in Hayward .... 14 Table B-16 Large Households (2019) ................................................................................................. 15 Table B-17 Single-Parent Households (2019) ..................................................................................... 16 Table B-18 Homelessness in Hayward and Surrounding Cities (2022) .............................................. 19 Table B-19 Housing Unit Growth (2000 to 2019) ............................................................................... 21 Table B-20 Housing Unit Type ............................................................................................................ 22 Table B-21 Household Size by Tenure ................................................................................................ 22 Table B-22 Vacancy Rates by Community (2019) .............................................................................. 24 Table B-23 Substandard Units (2019) ................................................................................................ 25 Table B-24 Overcrowding ................................................................................................................... 26 Table B-25 Comparison of Zillow Home Value Index (2015-2020) .................................................... 28 Table B-26 Comparison of Median Monthly Rent (2021) .................................................................. 29 Table B-27 Alameda County Income Limits (2021) ............................................................................ 30 Table B-28 Housing Cost Burden by Tenure (2014-2018) .................................................................. 31 Table B-29 Inventory of Assisted Rental Housing .............................................................................. 34 Figures
Figure B-1 Comparison of Median Household Income (2015-2019) Household Income ....................7 Figure B-2 Household Income (2015-2019) .........................................................................................8 Figure B-3 Distribution of Units by Number of Bedrooms and Tenure (2019) ................................. 23 Figure B-4 Tenure by Race of Householder (2015-2019) .................................................................. 23 Figure B-5 Housing Stock Age (2015-2019) ....................................................................................... 25 Figure B-6 Median Home Values (2020) ........................................................................................... 27 Figure B-7 Household Income by Rent in Hayward ........................................................................... 28 Figure B-8 Number of Unlawful Detainer Filings and Judgements Issued ........................................ 32
Housing Needs Assessment
1 Housing Needs Assessment
Ensuring adequate housing for all
Hayward’s
present and future residents is a primary housing goal
for the City. To realize this goal, the City must effectively target its programs and resources toward those households with the gre
atest need.
An assessment of the demographic, socioeconomic, and
housing characteristics in
Hayward
helps determine the specific housing needs of present and future residents.
This
section
discusses the characteristics of Hayward
’
s population and housing s
tock to
better define the nature and extent of unmet housing needs in the city.
This
section
includes the following sections
:
Population Characteristics
Age Characteristics
Race and Ethnicity
Economic Characteristics
Household
Characteristics
Special Needs Groups
Housing Stock Characteristics
Affordable Housing in Hayward
Population
Characteristics
Population characteristics affect the type and amount of housing needed in a community. Factors such as population growth, age and
income
distribution, and employment trends influence
housing
needs
including
the
type
and
affordability of housing
. The following section describes and analyzes
the various population characteristics and trends that affect housing needs.
Population Growth
The City of
Hayward
encompasses over 64
square miles
of Alameda County
and is located along
the
east side of San Francisco Bay between the unincorporated communities of Castro Valley, Ashland, and Cherryland to the north, and Union City to the south . The
City’s incorporated area extends from
the shoreline of the Bay into the
east Hayward Hills.
Incorporated in 1876, Hayward remained a
small agricultural town
until after World War II when the population rapidly increased the demand for suburban homes.
More
recently,
Hayward continued to grow as the Bay Area’s tech boom
further increased demand for housing within commuting distance of employment centers in Silicon Valley.
From
1990
to 2000,
Hayward’s
population increased by
over
25 percent to
140,030
residents.
Growth in
the city
slowed
from 2000 to 2010
, with an increase of
3 percent
.
From 2000 to 2020
H
ayward
’s population grew by 15 percent
. Hayward’s population grew 44 percent in the 30 years
since 1990
.
Because the
full release of
the
2020 Census
was delayed due to the COVID
-
19 pandemic,
only
limited high level demographic data was available for 2020.
Therefore, t
he more detailed analyses
presented in this housing element are based on the 2019 American Community Survey 5 -
year
Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
2 Estimate Tables from the U.S. Census Bureau. Table B-1 compares the population changes since 1990 of Hayward, five Alameda County cities, and the County as a whole.
Table B-1 Population Growth
1990 2000 2010 2020
Percent
Change
1990-2000
Percent
Change
2010-2020
Percent
Change
1990-2020
Oakland 372,242 399,566 390,724 419,571 7.3% 7.4% 12.7% Fremont 173,339 203,413 214,089 234,220 17.3% 9.4% 35.1% Berkeley 102,724 102,743 112,580 122,580 0.0% 8.9% 19.3% San Leandro 68,223 79,452 84,950 87,930 16.5% 3.5% 28.9% Union City 53,762 66,869 69,516 73,637 24.4% 5.9% 37.0% Hayward 111,343 140,030 144,186 160,834 25.8% 11.5% 44.4% Alameda County 1,276,702 1,443,939 1,510,271 1,670,834 13.1% 10.6% 30.9% Source: California Department of Finance, E-5 series.
Age Characteristics
A community’s current and future housing needs are determined in part by the age characteristics of residents. Typically, each age group has distinct lifestyles, family types and sizes, incomes, and housing preferences. As people move through each stage of life, housing needs and preferences may change. To create a balanced community that accommodates all age groups, it is important to provide housing options that suit a variety of needs.
Table B-2 shows the proportional populations by age group in the City of Hayward. While the City’s total population grew by approximately 14 percent, the child and youth population (ages 0-4 and 5- 19 years), decreased by approximately 13 percent and 8 percent respectively between 2000 and 2019. Much more growth was seen in Hayward’s older age categories. Between 2000 and 2019 the population of seniors (ages 65+) in the city grew by approximately 35 percent, which is the largest growth of any age category. In the same period, the population of adults between the ages of 35 and 64 grew by approximately 27 percent. This represents an increase in the proportion of Hayward’s population in the 34–64-year age group from approximately 35 percent in 2000 to 39 percent in 2019. Hayward’s median age has increased steadily from 31.9 years of age in 2000 to
35.5 years of age in 2019.
Table B-2 Age Characteristics
Age Groups
2000
Persons
2000
Percent
2010
Persons
2010
Percent
2019
Persons
2019
Percent
Percent Change
(2000-2019)
Under 5 years 11,011 7.9% 10,774 7.5% 9,618 6.0% -12.7% 5-19 years 30,494 21.8% 29,126 20.2% 28,221 17.7% -7.5% 20-34 years 35,761 25.5% 35,401 24.6% 40,415 25.4% 13.0% 35-64 years 48,537 34.7% 54,243 37.6% 61,827 38.8% 27.4% 65+ years 14,227 10.2% 14,642 10.2% 19,212 12.1% 35.0%
Total Population 140,030 100.0% 144,186 100.0% 159,293 100.0% 13.8% Median Age (years) 31.9 33.5 35.5
Source: Bureau of the Census, 2000. Bureau of the Census, 2010. ACS, 2019.
Housing Needs Assessment
3 Race and Ethnicity
The race and ethnicity of residents is important to an analysis of housing needs and conditions for several reasons.
Residential segregation and exclusion, whether by race
and e
thnicity
, disability,
or
income, is a result of numerous housing policies, practices, and procedures —
both public and
private
—
that have
enduring and pervasive negative impacts. Overt and covert housing discrimination through land use policy, shifting housing markets,
and patterns of investment and
disinvestment, have restricted meaningful fair housing choice and equitable access to opportunity, particularly for communities of color. Historic patterns of segregation persist in California despite the long
-
standing feder
al mandate, established by the Fair Housing Act of 1968 (FHA), that federal agencies and federal grantees affirmatively further the purposes of the FHA. To this end ,
it is
important for a city to understand the interplay of racial and ethnic demographics and housing issues. Further in
-
depth analysis and discussion of housing segregation and disproportionate burden can be found in Appendix
F,
Fair Housing Assessment
.
Alameda
County has become increasingly diverse in terms of race
and
ethnicity. As shown in
Table
B-3
, Hispanic/Latino residents comprise the largest racial/ethnic group in Hay
ward
, followed
by
Asian
residents
(which encompasses
many different ethnic groups of Asia and the Indian
Subcontinent
)
and non
-
Hispanic White residents
.
The proportion of Hispanic
/Latino residents
grew
from
approximately
34 percent in 2000 to
41 percent
in
2010 and has remained largely consistent
through 2019.
In the same period
,
the proportion of Asian residents has increased steadily from an
estimated
19 percent in 2000 to 27 percent
in 2019.
The proportion of non
-
Hispanic White residents
has decreased fr
om
approximately
29 percent in 2000 to 16 percent in 2019. In the same period, the proportion of African American residents
of Hayward
has decreased slightly from
11 percent to 9
percent.
American Indian or Alaska Native and Native Hawaiian and other Pacific Islander have each consistently accounted for 3 percent or less of the population of the city since 2000.
Because of increasing
family and household formation
among members of differen
t racial/ethnic
groups, the 2000 Census introduced a new category
–
“two or more races”
–
to better represent the
growing number of Americans who identify with
multiple
races or ethnic groups.
This
c
ensus
category has become more important, particularly in
ethnically and racially diverse
regions
like the
Bay Area
. According to the 201
5-
201
9 American Community Survey (ACS),
an estimated
5 percent of
Hayward
residents identified as being of
a
mixed racial/ethnic
background
.
Table
B-3 Race/Ethnicity
Race/Ethnicity
2000
Persons
2000
Percent
2010
Persons
2010
Percent
2019
Persons
2019
Per
cent
Non
-
Hispanic White
40,896
29.2%
27,178
18.8%
25,757
16.2%
African American
14,846
10.6%
16,297
11.3%
14,598
9.2%
Asian
26,189
18.7%
31,090
21.6%
43,088
27.0%
Native Hawaiian and Other Pacific
Islander
2,511
1.8%
4,290
3.0%
3,461
2.2%
Hispanic/Latino
47,850
34.2%
58,730
40.7%
64,269
40.3%
American Indian or Alaska Native
570
0.4%
492
0.3%
576
0.4%
Other Race or Two or More
Races
7,168
5.1%
6,109
4.2%
7,544
4.7%
Total
140,030
100%
144,186
100%
159,293
100%
Source: Bureau of the Census, 2000. Bureau of the Census, 2010. ACS, 2019.
Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
4 Economic Characteristics
Employment has an important impact on housing needs. Incomes associated with different jobs and the number of workers in a household determines the type and size of housing a household can afford. Higher-paying jobs provide broader housing opportunities for residents, while lower-paying jobs limit housing options. Additionally, employment growth is a major factor affecting the demand for housing in a community. In some cases, the types of jobs themselves can affect housing needs and demand (such as in communities with military installations, college campuses, and large amounts of seasonal agriculture).
Employment
Hayward’s proximity to major transportation corridors makes it attractive to major firms throughout the San Francisco Bay region. The city is home to a variety of employers including large public entities such as Alameda County Sheriff’s Department and California State University East Bay, as well as bio-medical and industrial corporations like Baxter Bio Pharma, Illumina, Plastikon Industries Inc., and Kobe Precision. Table B-4 lists the major employers located in Hayward, as reported in the City’s 2020 Comprehensive Annual Financial Report (CAFR).
Table B-4 Major Employers in Hayward
Name of Employer Type of Service
Alameda County Sheriff's Department Law Enforcement/Security Baxter Bio Pharma Bio-Medical
California State University East Bay Education
Chabot Community College Education
Costco Warehouse Retail/Grocery
Fremont Bank Operations Center Finance
Hayward Unified School District Education
Illumina Bio-Medical
Inland Marine Industries, Inc. Manufacturing
New Century Beverage (Pepsi) Beverage Production
Maleko Personnel, Inc. Staffing Services
Plastikon Industries, Inc. Bio-Medical
Gillig Corporation Manufacturing
St. Rose Hospital Hospital & Medical Services
City of Hayward Government
Kobe Precision Semiconductors
Note: The City’s CAFR did not report the number of employees at each firm in 2020.
Source: City of Hayward, 2020
Table B-5 summarizes the employment characteristics of the City’s civilian population. In 2000, the two largest occupational categories for residents were manufacturing and education/health/social services, accounting for approximately 16 percent and 15 percent of workers, respectively. These two categories represent just under one-third of jobs held by Hayward residents. By 2019, the employment share of the manufacturing sector in Hayward had fallen to 11 percent and the Housing Needs Assessment
5 employment share of the education/health/social services sector had grown to 2 0 percent.
Both
changes
are consistent with
employment trends in Alameda County and the broader Bay Area
Region.
According to ACS,
education/health/social serv
ices
had overtaken manufacturing as the
sector employing the largest percentage of workers in the city with professional services following with
14 percent of workers in 2019. Approximately one
-
third of working residents of Hayward are
employed in either o
f these two sectors. In Alameda County, education, health, social, and professional services account for 41 percent of employment in 2019.
Table
B-5
Employment Characteristics
Industry
Percent
of
City
Employment
in
2000
Percent
of
County
Employment
in
2000
Percent
of
City
Employment
in
2019
Percent
of
County
Employment
in
2019
Agriculture, forestry, hunting,
fishing,
and Mining
0.2 0.3
0.4 0.4
Construction
7.6 5.6
7.9 5.3
Manufacturing
16.3 14.2
11.4 9.8
Wholesale Trade
6.3 4.1
3.0 2.5
Retail Trade
12.7 10.8
10.7 8.9
Transportation and warehousing,
Utilities
7.9 5.8
7.3 5.1
Information
3.9 4.8
2.1 3.5
Finance, Insurance, and Real
Estate
6.3 6.8
5.3 6.1
Professional Services
10.4 14.8
13.9 19.9
Education, health, and social
services
14.6 18.3
20.2 21.4
Arts, entertainment, and
recreation
6.3 6.4
9.2 8.8
Other Services, except Public
Administration
4.4 4.5
5.3 4.9
Public Administration
3.1 3.7
3.3 3.5
Total
100
100
100
100
Sources:
Bureau of the Census, 2000 and American Community Survey, 2015 -
2019.
Table
B-6
displays mean annual wage data for occupations compiled by the California Employment Development Department (EDD) for
Alameda County
.
Management, legal, and professional
occupations generally off the highest wages
while
food service,
manufacturing
, and personal care
occupations
offer lower wages.
Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
6 Table B-6 Mean Salary by Occupation – Alameda County
Occupation Average Salary
Management Occupations $158,446
Legal Occupations $146,544
Computer and Mathematical Occupations $124,151
Healthcare Practitioners and Technical Occupations $121,183 Architecture and Engineering Occupations $109,102
Life, Physical, and Social Science Occupations $103,059 Business and Financial Operations Occupations $97,088
Construction and Extraction Occupations $79,163
Arts, Design, Entertainment, Sports, and Media Occupations $77,908 Protective Service Occupations $71,366
Educational Instruction and Library Occupations $70,691 Community and Social Service Occupations $68,136
Installation, Maintenance, and Repair Occupations $67,785 Sales and Related Occupations $59,555
Office and Administrative Support Occupations $55,056
Production Occupations $51,926
Transportation and Material Moving Occupations $48,835
Building and Grounds Cleaning and Maintenance Occupations $48,311 Personal Care and Service Occupations $42,532
Farming, Fishing, and Forestry Occupations $42,154
Healthcare Support Occupations $40,799
Food Preparation and Serving Related Occupations $38,872 All Occupations $76,328
Sources: California Employment Development Department, Occupational Wage data, 2021 Household Income
Household income is directly connected to the ability to afford housing. Higher income households are more likely to own a home rather than rent housing. Lower income households are more likely to occupy overcrowded or substandard housing and tend to pay a higher percentage of their income for their housing.
For planning and funding purposes, the California State Department of Housing and Community Development (HCD) has developed the following income categories based on the Area Median Income (AMI) of metropolitan areas such as Alameda County:
Extremely low-income: households earning up to 30 percent of the AMI Very low-income: households earning between 31 and 50 percent of the AMI Low-Income: households earning between 51 percent and 80 percent of the AMI Moderate-Income: households earning between 81 percent and 120 percent of the AMI Above Moderate-income: households earning over 120 percent of the AMI Housing Needs Assessment
7 Combined, the extremely low, very low, and low
-
income groups are referred to as lower
-
income.
1 Between
2014 and 2018, approximately 5
9 percent of Hayward households earned moderate or
above moderate
incomes, while 4
2 percent of households had lower
incomes.
Renters typically had
lower household incomes than homeowners with 53 percent of renter households having incomes less 80 percent AMI compared approximately 31% of owner households (
Table
B-7
).
Table
B-7 Household Income by Tenure (2014-2018)
Income Category (% of County AMI)
Percent of
Owners
Percent of
Renters
Total
Households
Percent
of Total
Households
Extremely Low (30% AMI or
less)
8.2%
18.6%
6,295
13.2%
Very Low (31 to 50% AMI)
9.6%
16.0%
6,060
12.7%
Low (51 to 80% AMI)
12.8%
18.5%
7,430
15.6%
Moderate or Above (over 80% AMI)
69.4%
46.9%
27,980
58.6%
Total
100.0%
100.0%
47,770
100.0%
Source: HUD; Comprehensive Housing
Affordability Strategy (CHAS), 2014
-
2018.
Household incomes in Hayward tend to be lower than those in Alameda County as a whole. The ACS estimates the median household income in Hayward between 2015 and 2019 to be $86,744, compared to $99,406 in the County.
Figure B-1
compares household income in Hayward and
Alameda County
between 2015 and 2019.
Figure B-1 Comparison of Median Household Income (2015-2019) Household Income
Source: Bureau of the Census, American Community Survey, 2015 -
2019.
1 Federal housing and community development programs typically assist households with incomes up to 80 percent of the AMI and u se
different terminology. For example, the Federal Community Development Block Grant (CDBG) program refers households with incomes
between 51 and 80 percent AMI as moderate income (compared to low -
income based on State definition).
$162,419
$133,354
$85,530
$78,003
$114,681
$86,744
$99,406
$0
$20,000
$40,000
$60,000
$80,000
$100,000
$120,000
$140,000
$160,000
$180,000
Oakland
Fremont
Berkeley
San Leandro
Union City
Hayward
Median Household Income
Alameda County Median Household Income
Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
8 Table B-8 compares median income in Hayward to neighboring cities and the region. Median household income in the city is approximately 13 percent lower than Alameda County’s AMI, but similar to Berkeley’s AMI.
Table B-8 Median Household Income (2015-2019)
Jurisdiction Median Household Income Percent above/below Regional Median San Leandro $78,003 -21.5%
Berkeley $85,530 -14.0%
Hayward $86,744 -12.7%
Union City $114,681 15.4%
Fremont $133,354 34.2%
Oakland $162,419 63.4%
Alameda County $99,406 0.0%
Source: Bureau of the Census, American Community Survey, 2015-2019.
As shown in Figure B-2, 17 percent of Hayward households earned less than $35,000 per year in 2019. By contrast, about 21 percent of Hayward households earned $150,000 or more per year.
Hayward has a higher concentration of low- and middle-income households and a lower proportion of higher income households than Alameda County.
Figure B-2 Household Income (2015-2019)
Source: Bureau of the Census, American Community Survey, 2015-2019.
Less than
$14,999
$15,000 -
$34,999
$35,000 -
$49,999
$50,000 -
$74,999
$75,000 -
$99,999
$100,000
- $149,999
$150,000
- $199,999
$200,000
+
Hayward 5.9% 10.6% 8.9% 17.4% 14.8% 21.4% 10.0% 11.1%
Alameda 7.6% 11.0% 7.7% 12.5% 11.5% 18.1% 12.3% 19.4%
0.0%
5.0%
10.0%
15.0%
20.0%
25.0%
Hayward Alameda
Housing Needs Assessment
9 Household Characteristics
The Census defines a household as all persons who occupy a housing unit, which may include single persons living alone, families related through marriage or blood, and unrelated individuals living together. Persons living in retirement or convalescent home s, dormitories, or other group living
situations are not considered households. Household type and size, income levels, the presence of special needs populations, and other household characteristics determine the type of housing needed by residents, their preferences, and their ability to obtain housing that meets their needs.
For example, single
-
person households
tend to reside in apartment units or smaller single
-
family
homes.
Households with multiple people, such as families with children or grandparents
in the
home,
typically
require
residences with several bedrooms
. This section details the various
household characteristics
represented in Hayward
.
Household Type and Size
Hayward
had
an
estimated
47,666
households in 201
9 ,
representing
an
estimated 6
percent
increase since 2000. As shown in
Table
B-9
, 7
4 percent of the city’s
households in 2018 were
families. The proportion of single
occupant
households and other non
-
family households
both
declined slightly
from 2000 to 2019.
In the same period the proportion of households composed of a married couple with children declined from 27 percent in 2000 to 2 3 percent in 2019.
In the same
period
, the average household size has increased from 3.0
7 to 3.
27 .
Table
B-9 Household Characteristics
Household Type
2000
Number
2000
Percent
2010
Number
2010
Percent
2019
Number
2019
Percent
Percent Change
(2000-2019)
Households
44,809
100%
44,380
100%
47,666
100%
6.4%
Family Households
32,228
71.9%
31,038
69.9%
35,233
73.9%
9.3%
Married with Children
12,349
27.6%
9,931
22.4%
10,741
22.5%
-13.0%
Married No Children
10,588
23.6%
10,852
24.5%
13,663
28.7%
29.0%
Other Families
9,291
20.7%
10,255
23.1%
10,829
22.7%
16.6%
Non
-Family
Households
12,581
28.1%
13,342
30.1%
12,433
26.1%
-1.2%
Householder Living Alone
9,356
20.9%
10,332
23.3%
8,710
18.3%
15.7%
Elderly Living Alone
3,423
7.6%
3,508
7.9%
3,179
6.7%
-7.1%
Other
Non
-
Families
3,225
7.2%
3,087
7.0%
3,723
7.8%
15.4%
Average Household Size
3.07 –
3.15 –
3.27 –
6.1%
Sources: Bureau of the Census, 1990
-
2010. American Community Survey 2015
-
2019.
Household size is a significant factor in housing demand. Often, household size can be used to predict the
size of housing unit
that a household will
require
. For example, housing units with up to
two bedrooms are suitable for
small households (one
to thre
e
persons per household) while
units
with three to four bedrooms
are more suitable for large households (five or more persons per household).
Housing choices are often more of a function of economics than preference ,
as
many
households
are obligated to rent smaller units or
extend beyond their financial means
to access
large
r
homes
.
Table
B-
10 shows that family household
s
to be significantly larger than non
-family
households.
Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
10 Table B-10 Household Size by Type
Household Type Average Household Size
Married-Couple Family Household 3.90
Male Householder (No Spouse Present) 3.92
Female Householder (No Spouse Present) 3.80
Nonfamily Household 1.55
All Households 3.27
Source: American Community Survey, 2015-2019.
In 2019, the average number of persons per household in Alameda County was 2.82 persons. The City of Hayward had an average of 3.27 persons per household in the same year, representing an increase from an average of 3.07 persons per household in 2000. Table B-11 compares household size in Hayward to household size in surrounding cities and the County as a whole. Household size varied among the cities, with Union City having the highest average household size among surrounding Alameda County jurisdictions.
Table B-11 Average Persons per Household by Jurisdiction Jurisdiction Average Household Size (2015-2019)
Berkeley 2.39
Oakland 2.58
San Leandro 2.85
Fremont 3.09
Hayward 3.27
Union City 3.39
Alameda County 2.82
Source: American Community Survey, 2015-2019.
Special Needs Groups
Certain segments of the population may have more difficulty in finding decent, affordable housing due to their special needs. Special circumstances may be related to one’s employment and income, family characteristics, disability, or household characteristics, among other factors. Government Code Section 65583(a)(7) requires an analysis of the needs of “special needs” groups including persons with disabilities, the elderly, large households, single-parent and particularly female- headed, single-parent households, people experiencing homelessness, and farmworkers. The special needs groups analyzed in this section include those groups required by state law as well as people living in poverty and college students (Table B-12). Many of these groups overlap, for example some farm workers are homeless, and many seniors have a disability of some type. This section contains a discussion of the housing needs facing each of these groups. Most of these special needs groups could be assisted by an increase in affordable housing, especially housing located near public transportation and services.
Housing Needs Assessment
11 Table
B-12 Special Needs Groups in
Hayward
Special Needs
Group
Number
of
Persons or Households
Percent
of Total
Persons or Households
Households with Seniors
12,927
27.1%
Senior Headed Households
9,288
19.5%
Seniors Living Alone
3,179
6.7%
Persons with Disabilities
14,022
8.9%
Large Households (5+
persons)
9,150
19.2%
Single
-
Parent Households
3,255
6.8%
Female Headed Households (no spouse present)
11,636
24.4%
Female Headed Households with children
2,591
5.4%
People Living in Poverty
13,084
8.4%
Farmworkers*
< 593
–
Homeless
381
0.2%
Students
14,059
8.8%
*City level data on the population of farmworkers in Hayward is not available. 593 value represents the number of farmworkers in Alameda County.
Sources: American Community Survey (ACS), 2015
-
2019; EveryOne Counts! 2022 Homeless Count and Survey, Hayward, CA, 2019; U.S. Department of Agriculture, Census of Farmworkers, 2017.
The following sections provide a detailed discussion of the housing needs
facing each special needs
group as well as programs and services available to address their housing needs.
While the
programs and resources discussed below are
available
to assist many special needs households and
individuals, households and individuals with these special needs still face significant hardship in
accessing adequate and affordable housing. Chapter 6
,
Housing Plan
,
discusses how Hayward
intends to address th
e limitations of the resources presented in this section.
Seniors
The limited income of many seniors often makes it difficult to find affordable housing.
Table
B-
12 shows that
9,288
households were headed by seniors,
which accounts for
approximately 20
percent
of total households.
Table
B-
13 shows that
1 9,212
persons age
d
65 and over resided in
Hayward
in
201
9 . This accounted for approximately
13 percent of residents; a similar or slightly lower
proportion
of seniors residing in
other Alameda County
cities
.
Table
B-13 Persons Aged
65 and Over
Jurisdiction
Total
Age 65+
Percent Age 65+
Hayward
159,293
19,212
12.1%
Fremont
235,740
29,846
12.7%
Oakland
425,097
55,715
13.1%
Berkeley
121,485
17,429
14.3%
San Leandro
90,025
13,558
15.1%
Union City
74,722
11,921
16.0%
Alameda County
1,656,754
224,026
13.5%
Source: American Community Survey, 2015
-
2019.
Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
12 Of households headed by seniors, an estimated 73 percent owned their homes, while the remainder (27 percent) rented their homes. According to the ACS, among 9,288 senior-headed households, approximately 6,544 (or 71 percent) can be considered extremely low, very low, and low income (earning less than 80 percent of the AMI).
In addition to disproportionate cost burden problems faced by seniors due to their relatively fixed incomes, many are faced with various disabilities. Senior renters, age 65 or over, in Alameda County and Hayward are increasingly cost-burdened. Since 2010, there was a 71 percent increase in cost- burdened seniors in Hayward, compared to a 51 percent increase in Alameda County2. Roughly 33 percent of Hayward’s senior population was listed as having one or more disabilities according to the 2015-2019 ACS. Further discussion of the types of housing problems seniors face can be found in Appendix F: Fair Housing Assessment.
Resources
The special needs of seniors can be met through a range of services, including congregate care, rent subsides, shared housing, and housing rehabilitation assistance. For seniors with physical limitations or disabilities, housing can be modified with features that help ensure continued independent living arrangements. The City of Hayward allocates approximately $300,000 in CDBG funds to two housing rehabilitation programs that assist homeowners with home repair grants that can be used to make accessibility improvements.
Several businesses and community institutions provide services to the elder community in Hayward.
The Hayward Area Senior Center offers recreation and resources aimed at helping seniors age in their own homes. Innovage, a holistic health provider specifically for seniors, offers transportation, in-home care, recreation, physical therapy, and many other supportive services designed to assist the large proportion of seniors living independently.
As of October 2021, 33 licensed elderly residential facilities were located in Hayward with a total capacity of 766 beds. The City of Hayward allows by right elder care homes smaller than six residents in all residential zones. Group homes for more than six persons are permitted in the Suburban Residential (RS), Residential Natural Preservation (RNP), Medium Density Residential (RM), High-Density Residential (RH), Agriculture (A), and Residential office (RO) zones, subject to a conditional use permit.
Persons with Physical and Developmental Disabilities
Physical, mental, and/or developmental disabilities may provide challenges to gaining employment, mobility, or independent living. Persons with disabilities may experience housing burdens and other challenges due to restricted income and/or accessibility needs. The living arrangement of disabled persons depends on the severity of the disability. Many persons with disabilities live at home independently or with family members. Independent living can be supported through special housing features for the people with disabilities, income support, and in-home supportive services.
Some persons with disabilities may require housing in a supportive or institutional setting.
Housing for persons with disabilities must be adapted according to individual needs. Various types of housing may be inaccessible to persons with mobility and sensory limitations. Housing may need to be adapted to accommodate widened doorways and hallways, access ramps, larger bathrooms, lowered countertops, and other features necessary for accessibility, and many housing types may
2 City of Hayward, Displacement Study (2021)
Housing Needs Assessment
13 not have suitable space for such adaptations. Location of housing is also an important factor for persons with mobility restrictions who rely on public transportation for travel.
S
ome residents suffer from disabilities that require living in a supportive or institutional setting.
According to 201
5-
201
9 ACS data, approximately
9 percent of
Hayward
residents had a disability.
Table
B-
14 shows the total number of disabled persons
per age group in the city
.
Table
B-14
Disabilities Tallied in
Hayward
(2019)
Disability Type
Under 18
Age 18 to 64
Age 65+
Total
Total
Disabled Persons
915
6,845
6,253
14,013
Note: A person can have multiple disabilities.
Source: Bureau of the Census, 2000 Census; American Community Survey, 2006 -
2010 and 2015
-
2019.
Persons with Developmental Disabilities
State law requires the
Housing Element to discuss the housing needs of persons with developmental disabilities. As defined by federal law, “developmental disability” means a severe, chronic disability of an individual that:
Is attributable to a mental or physical impairment or combination of mental and physical impairments;
Is manifested before the individual attains age 18;
Is likely to continue indefinitely;
Results in substantial functional limitations in three or more of the following areas of major life activity: a)
self-
care; b) receptive and expressive language; c) learning; d) mobility; e) self -
direction; f) capacity for independent living; or g) economic self -
sufficiency; and
Reflects the individual’s need for a combination and sequence of special, interdisciplin ary, or
generic services, individualized supports, or other forms of assistance that are of lifelong or extended duration and are individually planned and coordinated.
Many persons with developmental disabilities can live and work independently in a conven tional
housing environment. More severely disabled individuals require a group living environment with supervision. The most severely affected individuals may require an institutional environment with medical services and physical therapy. Many persons wit h developmental disabilities require
supportive services during the transition from childhood to a more independent living situation as an adult.
T
he
California
Department of Developmental Services
(DDS)
estimates that
,
in 2022
,
1,768
individuals with deve
lopmental disabilities
were living in Hayward
.
Of individuals with
developmental disabilities, 4
3 percent were children under 18 and 57 percent were adults.
The DDS currently provides community
-
based services to approximately 243,000 persons with
developmental disabilities and their families through a statewide system of 21 regional centers, four developmental centers, and two community
-
based facilities. The center is a private, non
-
profit
community agency that contracts with local businesses to offer a wide range of services to individuals with developmental disabilities and their families. According to DDS, as of December 2020,
2 3,423
individuals with developmental disabilities were being assisted at the
Regional Center
of the East Bay
(
RCEB
)
11,078
of which
were residents of Alameda County
.
Of these individuals
Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
14 served, approximately 24 percent were Hispanic, 18 percent were Asian, and 26 percent were white. Table B-15 shows the age distribution of people with developmental disabilities in Hayward.
Table B-15 Persons with Developmental Disabilities Served by RCEB by Age Group in Hayward
Age Group 0 – 14 15 – 22 23 – 54 55 – 56 65+ Total
Persons with Disabilities 511
(29%)
299
(17%)
650
(37%)
169
(10%)
139
(8%)
1,768
(100%)
Note: Percentages do not add up to 100 percent due to rounding. Data recorded by the RCEB is not a total count of persons with disabilities in San Leandro.
Source: Regional Center of the East Bay, 2022.
Resources
There are a number of housing resources that improve access to housing for people living with a development disability. These resources include rent-subsidized homes, licensed and unlicensed group homes in single-family neighborhoods, Section 8 vouchers, special programs for home purchase, HUD housing, and residential care facilities. The design of housing-accessibility modifications, the proximity to services and transit, and the availability of group living opportunities represent some of the types of considerations that are important in serving this need group. The City of Hayward allocates approximately $300,000 in CDBG funds to two housing rehabilitation programs that assist homeowners with home repair grants that can be used to make accessibility improvements.
Incorporating barrier-free design in all new multifamily housing, as required by California and Federal Fair Housing laws, is especially important to provide the widest range of choices for disabled residents. The Fair Housing Act requires builders of multi-family housing projects to be accessible to people with disabilities through considerations in seven key areas 3:
Accessible building entrance on an accessible route
Accessible and usable public and common use areas
Usable doors
Accessible route into and through the covered unit
Light switches, electrical outlets, thermostats, and other environmental controls in accessible locations
Reinforced walls for grab bars
Usable kitchens and bathrooms
While the Fair Housing Act creates a national baseline for multifamily housing accessibility, a citywide Universal Design Ordinance can go further to increase the usability of homes and apartments by people of all ages, sizes, and abilities. The Center for Universal Design 4 defines the
seven principles of Universal Design as:
Equitable use
Flexibility in use
3 United States Department of Housing and Urban Development, Fair Housing Act Design Manual (1998) 4 North Carolina State University, The Center for Universal Design, The Principles of Universal Design (1997) Housing Needs Assessment
15
Simple and intuitive use
Perceptible information
Tolerance for error
Low physical effort
Size and space approach and use
A
home that complies with a
Universal Design Ordinance
that aligns with these principles
enhances
the ability of all residents to live independently in their own homes as long as possible by allowing the house to adapt to a lifetime of changing needs. As detailed in Program H -
19 of t
he Housing Plan,
the city seeks to develop and adopt a Universal Design Ordinance by January 2025
.
Lastly, t
he City
of Hayward operates a paratransit service for adults unable to ride other public
transit due to a medical or other disabling condition. This
service is intended to supplement the East
Bay Paratransit Service when it is unable to provide service.
Arc of the East Bay
is the largest of
Hayward’s
provide
rs of
non
-
medical care services
and day programs
to the
developmentally
disabled community
.
Lar
ge Households
Large households are defined as those consisting of five or more members. These households comprise a special need group because of the
frequently
limited
supply of adequately sized and
affordable housing units in a community. To save for oth er basic necessities such as food, clothing,
and medical care, it is common for lower
-
income large households to reside in smaller units. This frequently results in overcrowding and
could
accelerate unit deterioration.
Table
B-
16 compares the number of large households in
Hayward
to that of
Alameda County
.
Approximately 1
9 percent of households in
Hayward
consisted of five or more persons, compared to
approximately 11
percent region wide.
Table
B-16 Large Households (2019)
Jurisdiction
#
of Large
Households
% of Total
Households
#
of
Large
Owner
Households
%
of Total
Households
#
of
Large
Renter
Households
%
of Total
Households
Hayward
9,150
19.2%
4,910
10.3%
4,240
8.9%
Alameda County
62,587
10.8%
34,619
6.0%
27,968
4.8%
Source: American Community Survey, 2015
-
2019.
Resources
Lower and moderate
-
income large households can benefit from various affordable housing programs. These include the Homeownership Education classes, Mortgage Credit Certificate program, affordable housing development assisted with City, State, and federal funds, and Housing Choice Vouchers, among others.
Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
16 Single-Parent Households
Single-parent families, particularly female-headed, single-parent families with children often experience a higher housing cost burden relative to the general population and may require assistance to access affordable day care, health care, and other supportive services to ensure fair access to housing and other resources. As a result, State housing element law requires that jurisdictions analyze the particular needs of single-parent households especially female-headed single-parent households. An estimated 7 percent of Hayward households were headed by single parents in 2019 (Table B-17), the majority of which (80 percent) were headed by females. This is compared to an estimated 5 percent of households in Alameda County, 80 percent of which were headed by females. According to the 2015-2019 ACS, 25 percent of female-headed single-parent households had incomes below the poverty level.
Table B-17 Single-Parent Households (2019)
Total
Households
Single-Parent
Households
Percent Total
Households
Female-Headed
Households
with Children
Percent of
Single-Parent
Households
Hayward 47,666 3,255 6.8% 2,591 79.6%
Alameda County 577,177 29,653 5.1% 23,572 79.5%
Source: American Community Survey, 2015-2019.
Resources
Lower-income single-parent households can benefit from City programs that provide direct rental assistance or that will facilitate the development of deed restricted affordable housing. Affordable housing opportunities can also be expanded for low- and moderate- income single-parent households through the Housing Choice Vouchers, Homeownership Education classes, and the Mortgage Credit Certificate program.
Extremely Low-Income Households
Extremely low-income households are defined by HCD as households with income less than 30 percent of AMI. The 2021 AMI in Alameda County for a family of four is $125,600. For extremely low-income households, this translates to an annual income of $54,300 or less. Households with extremely low-income have a variety of housing situations and needs. For example, most families and individuals receiving public assistance, such as social security insurance (SSI) or disability insurance are considered extremely low-income households.
As referenced in Section 1.4.2, approximately 6,295 extremely low-income households reside in the city, representing approximately 13 percent of the total households. The proportion of extremely low-income households in Hayward is lower than in Alameda County, where 16 percent of households are extremely low-income. Approximately 8 percent of owner-occupied households and 19 percent of renter-occupied households are extremely low-income. Therefore, extremely low- income households are more likely than other households in the city to rent their homes.
Some extremely low-income households could have physical or mental disabilities and/or other special needs. There is overlap between extremely low-income households and particular housing needs. Approximately 8 percent of extremely low-income households (664 households) are large families (five or more people per household), and 850 female-headed households with children live in poverty. Among senior households that earned 100 percent or less of the AMI, the greatest Housing Needs Assessment
17 number were extremely low
-
income househ
olds: 2,
220
senior households earned 30 percent or
below of the AMI. In comparison, 1,
740
senior households earned 31
-
50 percent of the AMI, 1,
315
that earned 51
-
80 percent AMI, and 7
29 earned 81
-
100 percent AMI. Additionally, the 2013
-
2017
CHAS estimates
indicate that 7
0 percent of extremely low
-
income households faced housing
problems (defined as cost burden greater than 30 percent of income and/or overcrowding and/or without complete kitchen or plumbing facilities). As discussed in Section
1.8.4 , extreme
ly low
-
income households
are likely to be cost burdened for both renters (82.6 percent) and homeowners (70.4 percent), where a total of 78.6 percent of ELI low -
income households are cost burdened
(spending more than 30 percent of monthly income on housing costs). The 201
4 -
201
8 CHA
S data
reported that
3,525
extremely low
-
income households that rent reported experiencing housing cost burden and
3,040
experience severe housing cost burden (spending more than 50 percent of monthly income on housing costs).
Race
and ethnicity differences are also apparent with extremely low -
income household
characteristics. According to the 2015
-
2019 ACS, residents who identify
as White (Hispanic and non
-
Hispanic), Black/African American, Hispanic/Latino, and American Indian/Alas ka Native had a higher
poverty rate than Other Race or Multiple Race and Asian American/Pacific Islander residents.
It can be difficult to project the number of extremely low -
income households for future years.
However, in a review of trends for families e
arning an income below the poverty level, the percent
of families in poverty has decreased since the ACS 2013 -
2017 dataset was compiled and has
generally decreased since the 2010
-
2015 time period
by a couple percentage points per available
dataset
.
Resour
ces
The City regulates supportive housing as a residential use, provided supportive services are subordinate to the residential use.
T
he city has 1,
567
subsidized affordable housing units.
Affordable housing opportunities for extremely low
-
income household
s can be expanded for
households through the Housing Authority of the County of Alameda (HACA)'s Housing Choice
Voucher (HCV) program that overwhelmingly service extremely low -
income households. HUD
estimates that
2,018
households receive HCVs in
Hayward.
There are
3,585
households served by
affordable housing units and housing vouchers, which has met over half of the
housing needs of the
city’s 4,270 households that are extremely low
-
income renters.
To address the range of needs, the City will employ prog rams to support affordable housing
development
,
remove constraints, and support development of housing types that may fit the needs of extremely low
-
income residents, such as supportive housing. During the planning period, the City will continue to encoura
ge affordable housing developers to apply for
HCVs through HACA
vouchers to more deeply subsidize affordable housing units constructed in the city. The City continues to fund or partner with local and regional organizations to provide HCVs, housing rehabil
itation grants, fair housing education and counseling, legal aid, and expand affordable housing opportunities for extremely low
-
income households.
Farmworkers
The US Department of Agriculture’s
(USDA)
2017 Census of Agriculture reported that in Alameda
County, a total of 593 persons were hired farm labor with 305 of these workers employed for 150 days or more, and
288
for 150 days or less
. The special housing needs of many agricultural workers stem fro
m their low wages and seasonal employment. According to the
2015
-
2019
ACS
, the total
number of residents employed in
farming, fishing, and forestry was less than
one
percent
of the
Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
18 city’s population. Given the low number of persons employed in agricultural-related industries, the City can address the needs of the farmworker population through its overall affordable housing programs. Because Hayward is an urban/suburban community on the shore of the San Francisco Bay, those persons identified as having agricultural jobs are most likely employed at plant nurseries and small-scale fishing operations and thus are not anticipated to have the seasonal housing needs associated with crop-related farmworker jobs.
The City does have an agricultural zoning designation, but this is mostly utilized for open-space preservation and ranchette-style residential properties. There are no large-scale agricultural operations in Hayward. Therefore, there is no need for land use regulations to address the State Employee Housing Act (Section 17000 of the Health and Safety Code).
Resources
Because farmworkers make up a small percentage of the City’s population, no specific housing programs are necessary. The housing needs of farmworkers in Hayward can be addressed through the City’s general affordable housing programs for lower-income households. Certain programs and services offered by agencies detailed in Hayward’s Housing Plan can also be of assistance to Hayward’s farmworkers.
Individuals Experiencing Homelessness
Throughout the country and the Bay Area, homelessness has become an increasingly important issue. According to the Everyone Counts! 2019 Homeless Count and Survey the factors contributing to the rise in homelessness in Alameda County include the loss of employment (13 percent of respondents), a mental health issue (12 percent of respondents), substance abuse issue (10 percent of respondents), eviction or foreclosure (9 percent of respondents), rent increase (9 percent of respondents), and incarceration (8 percent of respondents).
California Housing Element law (California Government Code Section 65583(1)(6)) requires municipalities to address the special needs of individuals experiencing homelessness within their jurisdictional boundaries. Individuals experiencing “homelessness” as defined by the U.S.
Department of Housing and Urban Development (HUD) Title 42 U.S. Code Section 11302, describes an individual (not imprisoned or otherwise detained) who:
Lacks a fixed, regular, and adequate nighttime residence; and Has a primary nighttime residence that is:
A supervised publicly or privately operated shelter designed to provide temporary living accommodations (including welfare hotels, congregate shelters, and transitional housing for the mentally ill);
An institution that provides a temporary residence for individuals intended to be institutionalized; or
A public or private place not designed for, or ordinarily used as, a regular sleeping accommodation for human beings.
This definition does not include persons living in substandard housing, unless it has been officially condemned; persons living in overcrowded housing, persons being discharged from mental health facilities (unless the person was homeless when entering and is considered to be homeless at discharge), or persons who may be at risk of homelessness (for example, living temporarily with family or friends).
Housing Needs Assessment
19 Homelessness continues to be a regional and national issue. Services and facilities available for the homeless are
coordinated
in
Hayward and Al
ameda County
as a continuum of care. The continuum
of care begins with assessment of the needs of the homeless individual or family. The person/family may then be referred to permanent housing or to transitional housing where supportive services are provid
ed to
mitigate any potential underlying causes of homelessness. The goal of a comprehensive homeless service system is to ensure that individuals and families experiencing homelessness
move
from homelessness
to
permanent housing
and have access to
support
systems to
maintain
that
housing
.
HUD requires that every other year, regional continuums of care conduct a point in time (PIT) count of all
sheltered and unsheltered people experiencing homelessness on a single night in January.
Alameda County’s
PIT count
of people experiencing homelessness was put on hold
in
202
1 due to
the COVID
-
19 pandemic
. As such, this report references data from the County’s 20 22 PIT count.
According to
the
2022
Alameda County
PIT
count
,
114
sheltered and
267
un
sheltered individuals
experience homelessness in
Hayward
.
Tabl
e B-
18 shows the number of sheltered and unsheltered
people experiencing homelessness in
Hayward
and surrounding cities.
Hayward’s population of
people experiencing homelessness accounts for
4 percent
of the county’s homelessness.
A similar
proportion of people experiencing homelessness are sheltered in Hayward when compared to other Alameda County cities.
Tabl
e B-18 Homelessness in
Hayward
and Surrounding Cities (2022)
Jurisdiction
Sheltered
Unsheltered
Total
% Sheltered
% of Total Homeless
Population in Alameda County
Oakland
1,718
3,337
5,055
34.0%
51.9%
Fremont
160
886
1,026
15.6%
10.5%
Berkeley
254
803
1,057
24.0%
10.8%
San Leandro
97 312
409
23.7%
4.2%
Hayward
114
267
381
29.9%
3.9%
Alameda County
2,612
7,135
9,747
26.8%
100%
Source: EveryOne
Counts! 2022 Homeless Count and Survey, Alameda County, 2022.
Resources
The
city
is included within the
Alameda County
Continuum of Care, which is a regional or local
planning body that coordinates housing and services funding for homeless families and individuals.
Homeless prevention activities in the
Alameda
County
Continuum of Care include
income support,
CalWorks, Cal
Fresh, Section 8 Vouchers, mental health and addiction treatment services, and rental assistance.
In 2021, the City adopted the Let
’s
House Hayward! Homelessness Reduction Strategic Plan to address the
increasingly
urgent issue of homelessness in the city.
The strategic plan leans heavily on
the findings of the 2019 EveryoneCounts
PIT
survey of homeless persons residing in Hayward.
Let’s
House Hayward!
i
dentified and outlined three specific goals
and
associated action items to address
homelessness. These go
als are:
Formalize a coordinated and compassionate response to homelessness and develop wider community understanding and engagement.
Increase the availability of an reduce barriers to homelessness crisis response services.
Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
20 Ensure access to and retention of affordable permanent housing.
To achieve these goals the City is facilitating inter-departmental and inter-agency collaboration to expand emergency and transitional shelter capacity; increase the availability and efficacy of holistic supportive services; and invest in eviction prevention, anti-displacement, and rapid re-housing initiatives.
Resources and programs in the Homeless Strategic Plan include six emergency shelters with a total of 155 beds, two winter warming shelters operated by South Hayward Parish and First Presbyterian Church, a rent stabilization and tenant protection ordinance, expanded COVID-19 rent mediation and assistance programs, and a policy of streamlining the development process for affordable housing units. The City intends to further expand shelter capacity and offer other low-barrier supportive services as the plan is implemented as well as reduce regulatory and zoning barriers to shelter and affordable housing development.
Currently, the City’s Zoning Ordinance defines “homeless shelter” as “an institution that provides shelter for individuals and families with no limitation on the length of stay.” The City accommodates homeless shelters in all General Commercial (CG), Mission Boulevard sub-areas (MB-CN/NN), and Industrial (I) zones provided the site and development meets the requirements and standards defined in the zoning code.
College Students
Hayward is home to California State University, East Bay (CSU East Bay) and Chabot Community College. According to the 2015-2019 ACS, approximately 14,059 (9 percent) of Hayward residents were enrolled in a college or graduate school between 2015 and 2019. The college student population (those enrolled or identified in a program above grade 12) is another significant factor that affects housing demand. Although students represent a temporary housing need, the impact upon housing demand is critical in areas immediately adjacent to trade schools, colleges, and universities. Given student income limitations, the same market forces that impact the lower income housing market also influences student housing.
Resources
Students can take advantage of all of the City’s housing stock, but they tend to most commonly utilize multi-family rentals given their needs and the cost of housing in the region. Multi-family housing is permitted in almost all zoning districts including the Mission Boulevard Form Based Code area, Downtown Specific Plan area, Commercial zoning districts and Medium and High-Density Residential Districts and Residential Office District with approval of Site Plan Review for new construction. A 2018, AB 990 Analysis for the CSU East Bay found that there were 129 multi-family units within a 3-mile radius of the university. In 2018, the average rent for a 1-bedroom unit across these properties was $1,721
5. Cal State East Bay offers limited on-campus student accommodation across two residential complexes, Pioneer Heights, and University Village. Chabot Community College does not offer on campus housing, but it does contract with a homestay agency to assist students with housing in the vicinity. These local student populations potentially generate demand for low-cost housing needs in Hayward and surrounding communities.
5 CSU East Bay, AB990 Off-Campus Housing Analysis (2018) Housing Needs Assessment
21 Housing Stock Characteristics
The characteristics of the housing stock, including housing production, type, age, condition, tenure, vacancy rates, housing costs, and affordability are important in determining the housing needs for the community. This section details the characteristics of the housing supply
to identify how well
the current housing stock
meets the needs of current and future residents of the
c
ity.
Table
B-
19 s
hows a comparison of growth in the number of housing units since 2000 across Alameda County cities.
The
housing stock
in most comparable cities
grew faster from 2000 to 2010
than
the following
9-year
period. The
n
umber of housing units in
Hay
ward grew appr
oximately
5 percent from
2000 to 2010 but grew less than 4 percent from 2010 to 2019.
The number of housing
units in Hayward grew slightly slower than Alameda County which grew by approximately 13 percent between 2000 and 2019.
Table
B-19 Housing Unit Growth (2000 to 2019)
Jurisdiction
2000
2010
2019
Percent Change
2000-2010
Percent Change
2010-2019
Percent Change
2000 - 2019
Berkeley
46,875
49,454
48,674
5.5%
-1.6%
3.8%
San Leandro
31,300
32,419
32,844
3.6%
1.3%
4.9%
Hayward
45,960
48,296
50,052
5.1%
3.6%
8.9%
Oakland
157,505
169,710
173,300
7.7%
2.1%
10.0%
Fremont
69,452
73,989
79,170
6.5%
7.0%
14.0%
Union City
18,862
21,258
22,903
12.7%
7.7%
21.4%
Alameda County
540,183
582,549
608,096
7.8%
4.4%
12.6%
Source: Bureau of the Census, 2000
-
2010. American Community Survey, 2015
-
2019.
Housing Type
Over
60 percent
of Hayward
housing stock consists of single
-
family homes. Multi
-
family dwellings
account for 3
3 percent of homes in
the city
, while mobile homes
and vehicles
comprise
5 percent of
all homes in the community. Between 2000 and 201
9 , the proportion of single
-
family hom
es
, both
detached and attached
,
has increased
from 5
8 to 62 percent of units in Hayward
. Correspondingly,
the proportion of multi
-
family homes has decreased slightly from
approximately 37
to 3
3 percent
,
and the proportion of mobile home
s
in the
c
ity
was consistent in this
same period.
A
ccording to
HCD,
t
here are
2,268
mobile home
spaces
in
Hayward across 1
0 mobile home
parks
.
6 As a means to protect lower
-
income
residents, m
obile home spaces in Hayward are subject to a rent
stabilization ordinance whi
ch limits a mobile home park owner from raising rent on a space more than
the greater of
three
percent in twelve months or 60 percent of the percent change in the consumer price index (CPI).
6 State Department of Housing and Community Development Mobile home and RV Parking Listing.
Access
ed
October
202
1. Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
22 Table B-20 Housing Unit Type
Housing Unit Type
2000
Units
2000
Percent
of Total
2010
Units
2010
Percent
of Total
2019
Units
2019
Percent
of Total
Percent
Change
2000-2010
Percent
Change
2010-2019
Single-Family Homes 25,814 57.5% 29,718 60.7% 31,062 62.1% 15.1% 4.5% Detached 22,423 49.9% 25,557 52.2% 25,641 51.2% 14.0% 0.3% Attached 3,391 7.6% 4,161 8.5% 5,421 10.8% 22.7% 30.3%
Multi-Family Homes 16,881 36.7% 16,876 34.5% 16,494 33.0% 0.0% -2.3% 2-4 units 3,274 7.3% 2,974 6.1% 2,626 5.2% -9.2% -11.7% 5+ units 13,607 30.3% 13,902 28.4% 13,868 27.7% 2.2% -0.2% Mobile Homes/Other 2,207 4.9% 2,353 4.8% 2,496 4.9% 6.6% 6.1% Total Housing Units 45,960 100% 48,947 100% 50,052 100% 6.5% 2.3% Sources: Bureau of the Census, 2000; American Community Survey, 2006-2010 and 2015-2019.
Tenure
Housing tenure refers to whether a unit is owned or rented. The owner versus renter distribution of a community’s housing stock influences several aspects of the local housing market. Residential stability is influenced by tenure, with ownership housing being associated with a lower turnover rate than rental housing. Housing cost burden (sometimes referred to as overpayment), while faced by many households regardless of tenure, is generally far more prevalent among renters. Tenure is primarily related to household income, housing type, and age of the householder.
Table B-21 Household Size by Tenure
Tenure Average Household Size 2000 Average Household Size 2010 Average Household Size 2019 Owner-Occupied 3.08 3.14 3.32
Renter-Occupied 3.13 3.10 3.22
Total 3.02 3.12 3.27
Sources: Bureau of the Census, 2000 and 2010; American Community Survey, 2015-2019.
In 2019, among the City’s occupied housing units, an estimated 54 percent were owner-occupied, while 46 percent were renter occupied. As shown in Figure B-3, renter-occupied households had a slightly smaller average household size than owner-occupied households in 2019. The average renter-household size in 2019 was 3.22 persons compared to 3.32 persons for the average owner- household. Though the average homeowner household size and renter household size is similar, the City's rental housing stock offers a smaller percentage of larger units (three and four bedrooms).
Figure B-4 shows that larger units were more likely to be owner occupied than rented. Larger sized units constituted 79 percent of owner-occupied housing and only 20 percent of renter-occupied units. This disparity in the availability larger sized rental housing may make accessing adequate housing difficult for larger households unable to afford home ownership.
Housing Needs Assessment
23 Figure
B
-
3 Distribution of Units by Number of Bedrooms and
Tenure (
2019
)
Source: American
Community
Survey 2015
-
2019
Due to historical
patterns
of segregation,
discriminatory lending
,
and urban renewal
,
non
-
white
households are less likely to own their home and access the wealth building opportunity that ownership
offers
.
Figure
B
-
4 shows that
rates of
home ownership are significantly higher among
non
-
Hispanic White
and Asian householders than
Black/
African American
householders
,
Hispanic/Latino
householders
,
and
householders belonging to another racial group
.
7 Figure
B
-
4 Tenure
by Race of Householder (
2015
-
2019
)
Source: American Community Survey 2015
-
2019
7 Urban Institute, 2021. Available:
https://apps.urban.org/features/tracking
-
housing
-
wealth
-
equity/
0 2000
4000
6000
8000
10000
12000
14000
16000
18000
20000
No bedrooms
1 Bedroom
2 Bedrooms
3 Bedrooms
4 Bedrooms
5+ Bedrooms
Owner Households
Renter Households
0.0%
10.0%
20.0%
30.0%
40.0%
50.0%
60.0%
70.0%
80.0%
90.0%
100.0%
Asian
Black/African American
White
Hispanic/Latino
Another Race
Owner
Renter
Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
24 Vacancy
Vacancy rates are an important housing indicator because they indicate the degree of choice available. Too high a vacancy rate can make it difficult for owners trying to sell or rent. Low vacancy rates usually indicate high demand and/or low supply conditions in the housing market. A vacancy rate that is too low can force prices up, making it more difficult for lower and moderate-income households to find housing. Vacancy rates between two and three percent for single-family housing and between 5 and 6 percent for multi-family housing are usually considered optimal for a healthy housing market. However, vacancy rates are not the sole indicator of market conditions. They must be viewed in the context of all the characteristics of the local and regional market. Low rental- housing vacancy rates in a community, common especially in high demand regions like the Bay Area, also contribute to increased rents, increased housing costs, increased homelessness, and difficulties exiting homelessness. Table B-22 shows a comparison of vacancy rates across Alameda County.
With a housing stock of 54 percent owner-occupied and 46 percent renter-occupied, the weighted optimum vacancy rate in Hayward should be between 3 and 4 percent. In 2019, the vacancy rate was 5 percent, which is comparable to other cities in Alameda County.
Table B-22 Vacancy Rates by Community (2019)
Jurisdiction % Vacant Total Units # Vacant
Oakland 6.3% 173,300 10,881
Fremont 4.4% 79,170 3,483
Berkeley 6.8% 48,674 3,322
San Leandro 4.3% 32,844 1,410
Union City 4.6% 22,903 1,051
Hayward 4.8% 50,052 2,386
Alameda County 5.1% 60,8096 30,919
Source: American Community Survey, 2015-2019.
Housing Age and Condition
Housing age can be an important indicator of housing condition in a community. Like any other tangible asset, housing is subject to gradual physical deterioration over time. If not properly and regularly maintained, housing can deteriorate and threaten the health and safety of residents, as well depress neighboring property values and discourage reinvestment. Many federal and state programs also use the age of housing as a factor in determining housing rehabilitation needs.
Typically, housing over 30 years of age is more likely to have rehabilitation needs that may include new plumbing, roof repairs, foundation work, and other repairs.
Figure B-5 shows the age of housing stock in Hayward compared to Alameda County. As of 2019, 80 percent of all housing units in Hayward were built prior to 1990, potentially requiring repairs and modernization improvements. Only 4 percent of the city’s housing units were built after 2010.
Housing Needs Assessment
25 Housing Stock Age (2015-2019)
Figure B-5
Source: American Community Survey 201
5-
201
9 Although the Census does not include statistics on housing condition based upon observations, it includes statistics that
correlate closely with substandard housing conditions. Three factors most commonly used to determine housing conditions are age of housing, overcrowding, and lack of plumbing/kitchen facilities.
Table
B-
23 below summarizes the availability of plumbing and kitchen facilities. In the past, lack of telephone service was also an indicator of housing conditions. Today, however, with the widespread availability of cell and int ernet phone services, many households
have chosen not to install land line telephone services.
Table
B-23
Substandard Units (201
9)
Condition
Number
Percentage
Lacking complete plumbing facilities
137
0.3%
Lacking
complete kitchen facilities
268
0.6%
Total occupied units
47,666
100.0%
Source: American Community Survey, 2015
-
2019.
According to
Table
B-
23 ,
less than
1 percent of
occupied units in
Hayward
lack plumbing and/or
kitchen facilities. The City’s Code Enforcement Division is familiar with the condition of housing and neighborhoods, in general. Because each of the officers within Code Enforcement is assigned to specific districts, the staff gains an in
-
depth insight into the condition of specific properties.
The Code Enforcement Division considers housing units in compliance with State minimum housing standards, as established under the California Health and Safety Code, and
California Building
Codes, to be standard and habitable units.
A
ny housing unit that does not meet these requirements
is considered substandard. Hayward’s Code Enforcement Department estimates that, based on past experiences and knowledge of specific neighborhoods related to code enforcement cases, 10 percent (approximately 4,700 units) of the City’s occupied units can be considered substandard and in need of rehabilitation and replacement. Housing that is not maintained can discourage 1939 -
earlier
1940 -
1949
1950 -
1959
1960 -
1969
1970 -
1979
1980 -
1989
1990 -
1999
2000 -
2009
2010 -
2013
2014 or
later
Hayward
3.5%
4.3%
24.7%
13.9%
20.5%
13.1%
8.7%
7.2%
2.0%
2.1%
Alameda County
19.5%
6.8%
12.8%
13.6%
15.4%
12.5%
8.8%
7.4%
1.6%
1.6%
0.0%
5.0%
10.0%
15.0%
20.0%
25.0%
Hayward
Alameda County
Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
26 reinvestment, depress neighboring property values, and can negatively impact the quality of life in a neighborhood. Improving housing is an important goal of the City. Common housing code violations and substandard conditions in Hayward include - unpermitted construction, moisture damage, Faulty electrical wiring, plumbing, windows, and roof systems, deteriorated exterior siding, and faulty heating and mechanical systems. Most of Hayward’s substandard units are suitable for rehabilitation.
Overcrowding
The combination of low-incomes and high housing costs has forced many households to live in overcrowded housing conditions. “Overcrowding” is generally defined as a housing unit occupied by more than one person per room. Rooms can include living rooms and dining rooms but excludes hallways, kitchens, and bathrooms. Significant overcrowding can indicate that a community does not have an adequate supply of affordable housing, especially housing that could accommodate large families.
Overcrowding typically occurs when there are not enough adequately sized units in a community, when high housing costs relative to income force more individuals to share a housing unit than it can adequately accommodate, or when families reside in smaller units than they need to devote income to other necessities, such as food and health care. Overcrowding tends to accelerate the physical deterioration of housing and disproportionately affects renter-households.
Table B-24 summarizes overcrowding in Hayward. Overcrowding decreased from approximately 20 to 11 percent between 2000 and 2010, but it rose to 14 percent by 2019. Similarly, the rate of severe overcrowding decreased from 11 percent in 2000 to 4 percent in 2010 and has stayed relatively stable through 2019. Approximately 21 percent of all renters lived in overcrowded conditions compared to 8 percent of owners according to ACS data. This disparity in the rates of overcrowding between owner and renter households is likely due to the relative scarcity of larger housing units available on the rental market as shown in Figure B-3.
Table B-24 Overcrowding
Owner-Households Renter-Households Total Households
Overcrowding Number Percent Number Percent Number Percent 2000
Total Overcrowded
(> 1.0 person/room)
2,930 12.2% 5,874 28.0% 8,804 19.7%
Severely Overcrowded
(>1.5 persons/room)
1,639 6.8% 3,369 16.1% 5,008 11.2%
2010
Total Overcrowded
(> 1.0 person/room)
1,375 6.0% 3,827 16.7% 4,767 11.0%
Severely Overcrowded
(>1.5 persons/room)
298 1.3% 1,627 7.1% 1,733 4.0%
2019
Total Overcrowded
(> 1.0 person/room)
1,948 7.7% 4,618 20.6% 6,566 13.8%
Severely Overcrowded
(>1.5 persons/room)
488 1.9% 1,683 7.5% 2,171 4.6%
Source: Bureau of the Census, 2000 Census; American Community Survey, 2006-2010 and 2015-2019.
Housing Needs Assessment
27 Housing Costs and
Affordability
Housing costs are indicative of housing accessibility to all economic segments of the community.
The cost of housing in a community is directly correlated to the number of housing problems and affordability issues. High housing costs can pric
e low
-
income families out of the market, cause
extreme cost burdens, or force households into overcrowded or substandard conditions.
This
section summarizes the cost and affordability of the housing stock to Hayward
residents.
Home Values
The real estate listing services company Zillow estimates that Hayward’s typical
home
value
in
December of 2020
was
approximately
$
745
,
855. This value is lower than the countywide
typical
value of
$
951
,
381
and the Bay Area as a whole
(
Figure B-6
)
. Home values in the city were
approximately
12 percent lower than
Oakland
and
22 percent lower than
Alameda County as a
whole
, but comparable to home values in San Leandro.
Figure B-6
Median
Home Values (2020)
Source: Home Value Index,
Zillow, 2020.
As demonstrated in
Table
B-
25 ,
h
ome values
in
Hayward
increased by about
41 percent between
201
5 and 202
0 . Other
Alameda County cities
also saw
significant
increases in median home prices
during this time, as did
Alameda
County as a whole.
$100,000
$300,000
$500,000
$700,000
$900,000
$1,100,000
$1,300,000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013
2014
2015
2016
2017
2018
2019
2020
Bay Area
Alameda County
Hayward
Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
28 Table B-25 Comparison of Zillow Home Value Index (2015-2020) Jurisdiction December 2015 Price December 2020 Price
Percent Change
in Home Value Index
Oakland $598,530 $845,670 +41.3%
Fremont $886,652 $1,180,205 +33.1%
Berkeley $1,031,750 $1,405,908 +36.3%
San Leandro $540,460 $763,777 +41.3%
Union City $706,084 $991,876 +40.5%
Hayward $527,757 $745,855 +41.3%
Alameda County $710,019 $951,381 +34.0%
Source: Home Value Index, Zillow, 2020.
Rental Costs
Less than half of Hayward households (46 percent) live in rental housing. According to the 2015- 2019 ACS, monthly rent ranges from less than $500 per month (3 percent of Hayward renters) to more than $2,000 per month (38 percent of Hayward renters). The most common rent category in the city is greater than $2,000 per month. Figure B-7 shows the distribution of monthly rental rates by income category.
Figure B-7 Household Income by Rent in Hayward
Source: American Community Survey, 2015-2019.
As shown on Table B-26, average monthly rents in Hayward ranged from $2,079 for a one-bedroom apartment to $2,523 for a three-bedroom apartment in 2021. Rents for efficiency units (studios) in Hayward are typically higher than comparable units in other Alameda County jurisdictions, but larger units in Hayward were significantly less expensive than similar units in Oakland, Fremont, and Less than
$10,000
$10,000 -
$19,999
$20,000 -
$34,999
$35,000 -
$49,999
$50,000 -
$74,999
$75,000 -
$99,999 $100,000+
<$500/mo 181 265 49 40 57 10 0
$500-1000/mo 93 318 412 113 184 100 119
$1,000-1,500/mo 162 319 660 769 1087 660 610
$1,500-2000/mo 202 597 700 1034 1847 1393 1514
>$2,000/mo 258 233 267 714 1548 1320 4058
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Renter Housholds
Income Category
Housing Needs Assessment
29 Berkeley. Only in the City of San Leandro are apartments of all sizes typically less expensive than apartments in Hayward.
Table
B-26 Comparison of Median
Monthly Rent (2
021)
Unit Size
Studio
1-Bed
2-Bed
3-Bed
Oakland
$1,405
$2,626
$3,642
$6,154
Fremont
$2,090
$2,293
$2,782
$3,883
Berkeley
$1,741
$1,904
$3,938
$4,052
San Leandro
$1,709
$1,701
$2,047
$2,483
Hayward
$2,159
$2,079
$2,608
$2,523
Source: Median rent search conducted on October 10, 2021, on Apartments.com.
Rents increased throughout the nation during the 2009 recession in response to continued high foreclosure rates, few new units, tightened standards for home loans, and demand from young workers. In addition, more people moved from homeownership to renting, which increased demand on rental housing. According to HCD’s Final Statewide Housing Assessment, rental costs in California have continued upward from 1990.
Housing Affordability
The cost of housing compared to the income of local households is used to determine the affordability of an area. If costs are high relative to income, housing problems such as overcrowding,
and cost burden are more likely to occur. The lack of affordable housing contributes to cost burden, overcrowding, and even
homelessness. “Affordable housing cost” for lower
-
income households is
defined in California law as not more than 30 percent of gross household income with variations (Health and Safety Code Section 50052.5). The comparable federal limit, more widely used , is 30
percent of gross income, with variations. “Housing cost” commonly includes rent or mortgage payments, utilities (gas, electricity, water, sewer, garbage, recycling), and property taxes and insurance on owner
-
occupied housing.
The median income for
renter households in
Hayward
$
68 ,
591
which equates to an affordable
monthly housing cost of $1,714. The median income for owner households is $ 109
,
359
which
equates to an affordable monthly housing cost of $2,740.
According to
CHAS
data
,
half of all rente
rs
and 30 percent of homeowners
in
Hayward
spend more than 30 percent of their gross monthly
income on housing.
Severe cost burden occurs when 50 percent of
a household’s
monthly income goes towards paying
housing costs. In
Hayward
,
2 3 percent of renter households experience severe cost burden .
Comparing
rental
housing costs in
Hayward
and maximum affordable prices for low
-
income
households in
Alameda
County shows that hous
eholds
with HUD defined low
-
income can afford
rental housing in Hayward.
Very
-
and
extremely low
-
income households
(the majority of which are
renter households)
are being priced out of Hayward.
Table
B-
27 shows the affordable rent for each income category as shown in the Alameda
County
HCD
income limits. According to the table, affordable monthly rent for lower income households (0 -
80 percent
AMI) would range from $
1,02
8 at
30 percent AMI to $
2,740
at 80 percent AMI.
Alternatively, households in the moderate and above moderate -
income categories could afford rent
over $
3,700
.
Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
30 Table B-27 Alameda County Income Limits (2021)
AMI 4-Person Household Standard HUD Income Groups
Adjusted HUD
4 – Person
Household
Adjusted
HUD Income
as % of AMI
Affordable
Monthly
Rent
$125,600 Extremely Low Income (30% AMI) $41,100 32.7% $1,028 Very Low Income (50% AMI) $68,500 54.5% $1,713
Low Income (80% AMI) $109,600 87.2% $2,740
Moderate Income (120% AMI) $150,700 – $3,768
Above Moderate (> 120% AMI) > $150,700 – > $3,768
The defined “Affordable Monthly Rent” is affordable for households at the income threshold. The Alameda County income levels are upwardly adjusted for high housing costs using the VLI 4-person household as the basis for all other income calculations for HUD’s income groups.
The ELI, VLI and LI income groups are provided by HUD, Moderate and Above Moderate are generated using HUD-provided ratios.
Source: Alameda County Housing & Community Development Income and Rent Limits, 2021.
Source: HUD adjusts income limits upward to account for high-cost housing markets such as Alameda County.
Housing affordability can be inferred by comparing the cost of renting or owning a home in the city with the maximum affordable housing costs for households at different income levels. Taken together, this information can generally show who can afford what size and type of housing and indicate the type of households most likely to experience overcrowding and overpayment.
HUD conducts annual household income surveys nationwide to determine a household’s eligibility for federal housing assistance. Based on this survey, HCD developed income limits that can be used to determine the maximum price that could be affordable to households in the upper range of their respective income category. Households in the lower end of each category can afford less by comparison than those at the upper end.
Cost Burden
Measuring the portion of a household’s gross income that is spent for housing is an indicator of the dynamics of demand and supply. This measurement is often expressed in terms of “over payers”:
households paying an excessive amount of their income for housing, thereby decreasing the amount of disposable income available for other needs. This indicator is an important measurement of local housing market conditions because it reflects the affordability of housing in the community. Federal and state agencies use overpayment indicators to determine the extent and level of funding and support that should be allocated to a community. State and federal programs typically define over- payers as those lower-income households paying over 30 percent of household income for housing costs. A household is considered experiencing a severe cost burden if it spends more than 50 percent of its gross income on housing.
Housing cost burden affects a substantial portion of households in Hayward, particularly lower income renter households and Hispanic/Latino and Black/African American households. Table B-28 presented earlier provides overpayment detail by income group and household type in Hayward between 2014 and 2018. At lower-income levels, cost burden has a greater impact on renters than on owners. For households with moderate and above moderate incomes, cost burden is less prevalent and impacts renters and owners at similar rates. While approximately 40 percent of all households in Hayward are housing cost burdened, 48 percent of Hispanic/Latino households and 53 percent of Black/African American households are cost burdened.
Housing Needs Assessment
31 Table
B-
28 also details the housing assistance needs for lower
-
income households that rent or own
in
Hayward
. The types of problems vary according to household income, type, and tenure. Some notable
trends
include:
Low-
income households are
more
likely to
rent their
homes
;
Renter-
house
holds are significantly more likely to experience
housing cost burden
(
50 percent)
compared to owner
-
households (3
0 percent);
Approximately
79 percent of extremely low
-
income
households,
76 percent of very low
-
income
households
,
and
63 percent of low
-
income
households
are housing cost burdened;
and
Over 71 percent of extremely low
-
income renter households spend more than 50 percent of
their income on housing and 8
3 percent spend more than 30
percent of their income on
housing.
Table
B-28 Housing Cost Burden by Tenure
(201
4-2018)
Household by Tenure,
Income, and
Cost Burden
Renters
Owners
Total
Households
Extremely low
-
income
(0
-
30% AMI)
4,270
2,025
6,295
With cost burden >30%
82.6%
70.4%
78.6%
With cost burden > 50%
71.2%
58.0%
67.0%
Very low
-
income (31
-
50% AMI)
3,680
2,380
6,060
With cost burden >30%
88.7%
57.4%
76.4%
With cost burden > 50%
41.3%
38.7%
40.3%
Low
-
income (51
-
80% AMI)
4,260
3,170
7,430
With cost burden >30%
68.9%
54.7%
62.9%
With cost burden > 50%
14.9%
12.3%
13.8%
Moderate & Above Income (>80% AMI)
10,800
17,805
27,980
With cost burden >30%
16.6%
16.6%
17.0%
With cost burden > 50%
1.1%
1.7%
1.5%
Total
Households
23,015
24,755
47,770
With cost burden >30%
50.0%
30.2%
39.8%
With cost burden > 50%
23.1%
11.3%
16.9%
Note: Data presented in this table are based on special tabulations from the American Community Survey (ACS) data. Due to the
small
sample size, the margins of errors can be significant. Interpretations of these data should focus on the proportion of house holds in
need of assistance rather than on precise numbers.
Source: HUD Comprehensive Housing Affordability Strategy (CHAS), 2014 -
2018.
Eviction
From 2000 to 2019, the annual num
ber of unlawful detainer filings in the City of Hayward averaged 984 per year, with a peak in 2008 of 1,664 filings.
As shown on
Figure B
-8
, f
ilings declined steadily
from 2008, plateaued from 2016 to 2019, then dropped significantly beginning in March 2020 due to the local, state, and federal COVID
-
19 eviction moratoria. The proportion of filings that resulted in a judgment (as opposed to a dismissal) remained consistent with the number of filings, as shown in the chart below. From 2010 (when data become available) through 2019, approximately 31% of judgments resulted in a completed writ of possession (i.e., the Sheriff’s Office removed the tena nts).
Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
32 In 2020 and 2021, during the COVID-19 pandemic and its corresponding eviction moratoria, an average of 8% of judgments resulted in a completed writ of possession.
Figure B-8 Number of Unlawful Detainer Filings and Judgements Issued
Notes. iWrit of possession data are only available beginning in 2010. iiData source: California Superior Court of Alameda In July 2019, Hayward City Council enacted the Residential Rent Stabilization and Tenant Protection Ordinance (RRSO), which created a rent increase threshold for covered rental units1 and just cause eviction protections for all rental units with few exceptions. The number of unlawful detainer filings in the nine months following the enactment of the RRSO decreased by 13% compared to the nine months before the RRSO was passed.
Affordable Housing
The City of Hayward is committed to facilitating and preserving affordable housing opportunities for its residents. State law requires the analysis of government-subsidized housing that may change from low-income housing to market-rate housing during the next 10 years. This section summarizes tenant-based rental housing in the city as well as affordable housing at-risk of converting to market rates and the cost to preserve or replace the at-risk units.
Rent Stabilization Ordinance and Naturally Occurring
Affordable Housing
In June of 2019, the City of Hayward adopted the Residential Rent Stabilization and Tenant Protection Ordinance (RRSO) to encourage investment in local residential rental housing by allowing landlords to make a fair return on their real estate investments while also protecting the welfare of its citizens who are its tenants. The aim of the RRSO is to help mitigate housing problems caused by the lack of available housing for lower income households and rapidly rising rents. Under the RRSO,
H
ousing Needs Assessment
33 landlords of units built before July 1,
1979,
may raise the rent of those units a maximum of 5
percent
per year.
In 2019, t
he RRSO
was updated and
extended
protections to
approximately
12,000
rental units that were initially subject to the City’s 1983 Residential Rent Stabilization Ordinance.
Older housing stock
can
provide
a source of
naturally occurring affordable housing
which is not
subject to rent control or deed restriction.
As these units undergo refurbishment or a change in
ownership,
they will often
see
an increase in market
-
rate rent thereby becoming unaffordable to
lower inco
me households.
There may be significant opportunity for the City to purchase these units outright
or facilitate a transfer of ownership to a non
-
profit entity to maintain
affordability in
perpetuity.
T
he city
seeks to develop and adopt a program to facilit
ate the purchase of naturally
occurring affordable housing
to convert
to deed restricted affordable housing.
Tenant
-
Based Rental Housing Assistance
The Housing Authority of Alameda County
(HACA)
serves Hayward and provides housing choice
vouchers for lowe
r
-
income households. The Section 8 Rental Assistance Program provides rental subsidies to low
-
income families that spend more than 30 percent of their gross income on housing costs. Additionally, Section 202 program funds development of affordable housing for senior
households and Section 811 program provides non
-
profits with funding to provide supportive
housing for disabled, very
-
and extremely low
-
income persons.
HACA currently provides over 7,000
Alameda County families with housing vouchers through HUD
assistance programs.
The Alameda
County Housing Choice Voucher waiting list is currently closed and fewer than 10 families are placed in assisted housing per month.
The City also uses a portion of its HOME allocation to fund a rental
assistance program
fo
r transition age youth
who have “aged
-
out” of the
foster care system.
This
program
typically
serves
12 transition age youth
(TAY)
per year.
The City is in the process of
establishing
a shallow subsidy pilot
program
, which will provide small monthly rental subsidies to
between 40 and 50
extremely low
-
income
households for
12 –
18 -
month
durations.
Publicly
Assisted
Rental Housing
The City of Hayward uses various funding sources, including HUD’s housing voucher programs,
Community Development Block Grants (CDBG), HOME funds,
Low
-
and Moderate
-
Income
Housing
Funds
and Affordable Housing
O
rdinance in lieu fees to preserve and increase the supply of affordable housing in the city through the acquisition and/or rehabilitation
of renter
-
occupied units
and the rehabilitation of owner
-
occupied units.
The
c
ity has a range of publicly assisted rental housing affordable to lower and moderate -
income
households.
Table
B
-
29 provides a summary listing of affordable projects in the city
.
Overall,
23 projects provide
a total
of 1,
567
assisted
rental housing units in the
city
.
Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
34 Table B-29 Inventory of Assisted Rental Housing
Project Name Total Units Assisted Units Funding Source
Earliest Date
of Conversion
At risk of conversion before 2031
Hayward Villa 78 78 Section 8 New Construction 10/31/2025 Josephine Lum Lodge 150 106 Section 8 LMSA 12/31/2025
Sycamore Square 26 26 Section 8 New Construction 12/31/2028 Wittenberg Manor II 65 64 Section 202/Section 811 9/30/2022 Weinreb Place 22 21 Section 202/PRAC 12/31/2021
Properties at risk of conversion after 2031
EC Magnolia Court 21 21 Section 8/Section 202 3/31/2033 Eden Issei Terrace 100 100 Section 8 New Construction 3/31/2033 Montgomery Plaza 50 50 Section 8 New Construction 3/31/2034 Olive Tree Plaza 26 26 Section 8/Section 202 3/31/2033
Tennyson Gardens
Apartments/Faith Manor
158 155 Section 8 LMSA/RDA/TC 12/31/2073
Wittenberg Manor 95 95 Section 8 New Construction 5/31/2040 Villa Springs 66 66 RDA/TC 2065
C & Grand Senior Housing 60 60 Inclusionary/RDA/TC 2064 The Majestic Apartments 81 81 Bond/RDA/TC 2063
Walker Landing 78 78 Inclusionary/Bond/TC 2062
Huntwood Commons 40 40 HOME/WFHRGP 2061
Lord Tennyson 252 252 Bond/TC 2060
Sara Connor Court 57 57 HOME/RDA/TC 2059
Park Manor Apartments 81 81 TC/CDBG 2031
742 Harris Court 4 4 HOME 2054
Harris Court Apartments 20 20 HOME/TC 2053
Glen Berry 50 50 HOME/CDBG/TC 2048
Glen Eden 36 36 CDBG/RDA/TC 2047
Total 1,567
Source: City of Hayward, 2021; HUD Section 8 Database, accessed October 2021 Sycamore Square, Tennyson Gardens Apartments, and Wittenberg Manor II are owned by a non- profit entity and are therefore at low risk of conversion before 2031. Josephine Lum Lodge is owned by a limited dividend housing corporation and is also at a low risk of conversion. Hayward Villa is owned and managed by for-profit entities and is therefore at a higher risk of conversion when its affordability controls expire in 2025. The City will continue to monitor the status of these at-risk units. Should a Notice of Intent to opt out of the voucher program be filed, the City will ensure that tenants are properly notified of their rights under California law. The following section outlines several avenues the City may pursue to preserve affordable housing stock.
Housing Needs Assessment
35 Preservation of At
-
R
isk Housing
State law requires that the City identify, analyze, and propose programs to preserve existing multi -
family rental units that are eligible to convert to non -
low
-
income housing uses due to termination
of subsidy contract, mortgage prepayment, or
expiring use restrictions during the next
10 years.
Thus, this at
-
risk housing analysis covers the period from
January
202
3 and
January
203
3 . Consistent
with State law, this section identifies publicly assisted housing units in Hayward
, analyzes their
pot
ential to convert to market rate housing uses, and analyzes the cost to preserve or replace those units.
Within the 202
3 -
203
3 “at
-
risk” housing analysis period,
three
of the City’s affordable housing
projects are considered at low risk
and one is considere
d at high
er
risk
of being converted to market
rate
. While the HUD renewal process occurs periodically every five years, the approval is fairly automatic. Though unlikely, it is possible
295
of the City’s affordable housing units could convert to market
-
rate at some point in the planning period.
Preservation Options
Depending on the circumstances of the at
-
risk projects, different options may be used to preserve or replace the units. Preservation options typically include: 1) transfer of units to non -
profit
ownership; and 2) purchase of affordabil
ity covenants. In terms of replacement, the most direct option is the development of new assisted multi
-
family housing units. The following discussion
highlights ways that the City’s at
-
risk projects could be preserved as affordable housing.
All
the
presen
ted alternatives are costly and beyond the ability of the City of Hayward
to manage without
large
subsidies
from federal and/or State resources. These options are described below.
Transfer of Ownership
Typically, transferring ownership of an at
-
risk projec
t to a non
-
profit housing provider is one of the
least costly ways to ensure that the at
-
risk units remain affordable for the long term. By transferring property ownership to a non
-
profit organization, low
-
income restrictions can be
secured,
and the
projec
t would become potentially eligible for a greater range of governmental assistance.
If the current nonprofit organizations managing the units at risk are no longer able to maintain the project, transferring ownership of the affordable units to another non profit housing organization is
a viable way to preserve affordable housing for the long term. The feasibility of this option depends on the willingness of the owner to sell, funding sources to buy the property, and the existence of a nonprofit organization
with sufficient administrative capacity to manage the property. Additionally, projects such as
Hayward Villa and Wittenberg Manor
, in which all units are affordable, can
participate in ownership transfers more easily and are therefore more likely to be fe asible. The City
will track the at
-
risk status of
these
at
-
risk
projects
. If these properties indicate plans to convert to
market rate, the City will contact qualified entities to explore transfer of ownership options.
California Government Code
65863.11
r
equires that
nonprofit housing organizations
are notified of
an
impending
transfer of ownership
,
but there is no requirement t
hat the current owner sell to an
affordable housing
developer or organization
.
Most
assisted rental housing units in
Hayward
are
a
lready operated by nonprofit organizations; as such, no changes in ownership in the near future are anticipated.
Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
36 Rental Assistance
Similar to Housing Choice Vouchers, the City could provide rent subsidies to tenants of at-risk units through a variety of potential funding sources. The level of the subsidy required to preserve the at- risk units is estimated to equal the Fair Market Rent (FMR) for a unit minus the housing cost affordable to a lower income household. Units in the at-risk projects include 74 studios, 189 one- bedroom units, 6 two-bedroom units, and 24 three-bedroom units. According to 2022 data from HUD, FMR for these units range from $1,595 for a studio to $3,196 for a 3-bedroom apartment.
State, local, or other funding sources can also be used to provide rental subsidies to maintain the affordability of at-risk projects. These subsidies can be structured to mirror the voucher program, whereby the subsidy covers the cost of the unit above what is determined to be affordable for the tenants’ household income (including a utility allowance) up to the fair market value of the apartment. The per-unit subsidy is based on the difference between fair market rents and the annual amount affordable to a low-income household. Assuming a renter contribution of 30% of the fair market rent of each unit, the total subsidy needed for the 295 at-risk affordable units in the city is $4.8 million.
Purchase of Affordability Covenants
Another option to preserve the affordability of the at-risk project is to provide a financial assistance package to the owner to maintain the project as affordable housing. Assistance could include bonds, writing down the interest rate on the remaining loan balance, providing a lump-sum payment, and/or supplementing the rents to market levels. The feasibility and cost of this option depends on whether the complex is too highly leveraged. By providing lump sum financial incentives or ongoing subsidies in rents or reduced mortgage interest rates to the owner, the City could ensure that some or all the units remain affordable.
Construction of Replacement Units
The construction of new low-income housing units is a means of replacing the at-risk units if they are converted to market-rate units. The cost of developing housing depends upon a variety of factors, including density, size of the units (i.e., square footage and number of bedrooms), location, land costs, and type of construction. According to the 2019 California Tax Credit Allocation Committee (TCAC) staff reports, the typical cost of construction for below market rate housing in Alameda County in 2019 was $726,469 per unit. The total cost to replace the 295 at-risk affordable units with new construction would be approximately $214 million.
Cost Comparisons
The above analysis attempts to estimate the cost of preserving the at-risk units under various options. However, because different projects have different circumstances and therefore different options available, a direct comparison would not be appropriate. In general, providing additional incentives/subsidies to extend the affordability covenant would require the least funding over the long run, whereas the construction of new units would be the costliest option. Over the short term, providing rent subsidies would be least costly, but this option does not guarantee the long-term affordability of the units.
To estimate the market value for the at-risk units, the price of multi-family housing developments in the City that are for sale and in good condition were analyzed to calculate an average price per unit.
According to recent multifamily developments for sale as of December 2021, the cost per unit is Housing Needs Assessment
37 approximately $
410
,000. Therefore, the market value to r
eplace the units at risk for conversion is
roughly
$
121 million
(2
95 affordable at
-
risk units multiplied by $
41 0,000).
Resources for Preservation
Preservation of at
-
risk housing requires not only financial resources but also administrative capacity of non
profit organizations. These resources are discussed in detail later in this Housing Element in Appendix C,
Housing Resources
.
Hayward Housing
Element
City of Hayward
2023-2031 Housing Element Update
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