OAKLAND 2045 GENERAL PLAN UPDATE: HOUSING
ELEMENT
PRESENTATION TO THE COMMUNITY AND ECONOMIC DEVELOPMENT
COMMISSION
1 PLANNING & BUILDING DEPARTMENT
February 22, 2022
AGENDA
Overview
General Plan Update
Community Engagement
Housing Element Update
Overview
Initial Findings:
Accomplishments
Needs
AFFH
Housing Sites
Discussion/Brainstorming
Policies and Programs
Housing Sites
2 OVERVIEW
3 PURPOSE AND NEED OF THE GENERAL PLAN
The City of Oakland is required to adopt (and update) a General Plan pursuant to Section 65300 of the
California Government Code.
Many portions of Oakland’s General Plan were
adopted over 23 years ago.
State law requires specific topics (elements) to be
covered in a general plan.
4 The General Plan Update serves as an opportunity to advance the City’s critically important mission to“intentionally integrate, on a citywide basis, the principle of 'fair and just' in all the city does in order to achieve equitable opportunities for all people and communities.”
(Oakland Municipal Code 2.29.170.1)
5 What is a General Plan?
Establishes citywide vision and
supporting goals, policies, and
implementation measures.
"Constitution" for
development and
conservation.
Provides consistent direction
for future development.
Opportunity to look
back to identify past
challenges and
accomplishments.
Engage our community in the
planning and decision-making
process.
Opportunity to Reduce
Racial Inequities &
Promote Inclusive
Engagement
6 TO BE UPDATED BY EARLY 2023
HOUSING
Adopted 2014
SAFETY
Adopted 2004
(Last amended 2021)
ENVIRONMENTAL
JUSTICE
*New Requirement*
May be stand-alone or
integrated
INDUSTRIAL
LANDS POLICY
*New*Required by State Law
Required by State Law
Required by State Law
NOT required by State
Law
7 OTHER REQUIRED ELEMENTS
OPEN SPACE,
CONSERVATION
& RECREATION
(OSCAR)
Adopted 1996
LAND USE
& TRANSPORTATION
Adopted 1998
Includes Estuary Policy
Plan for areas below
Interstate 880
(Adopted 1999)
NOISE
Adopted 2005
8 OPTIONAL ELEMENTS
HISTORIC
PRESERVATION
ELEMENT
Adopted 1994
Amended 1998
SCENIC HIGHWAYS
ELEMENT
Adopted 1974
INFRASTRUCTURE AND
FACILITIES ELEMENT
*New Element*
Overarching goals and policies for
city infrastructure over the long
term.
Reflects capital improvements
identified in the LUTE, OSCAR,
Safety, and other General Plan
elements.
9 General Plan Update Phase 1
10 General Plan Update Phase 2
11 COMMUNITY
ENGAGEMENT
UPDATE
12 NOVEMBER 2021 –
JANUARY 2022
7 Pop-ups Events
Fruitvale, Chinatown
Eastmont San
Antonio
Number of people
reached: 925
522 in person; 403
online*
* Social Media interactions
November-December
2021: retweets, likes,
impressions - persons can be
duplicated
13 MLK DAY POP UP EVENT – JAN 16, 2022
Feedback
Neighborhoods are like villages
Culture and village are disappearing
with ongoing displacement
Listen to the most impacted communities
Housing: Affordability and Homelessness
Environmental:Pollution and Wildfire
Economic: Income and Investment
14 CALENDAR OF EVENTS – FEBRUARY 2022
5–6 Feb.
Cultural Hub #1:
Oakland Asian Cultural
Center (OACC) Asian
Pacific New Year
Celebration
6 Feb.
Pop-up Event in Akoma
Market
9 Feb.
Parks and Recreation
Advisory Commission
(PRAC)
10 Feb.
Housing Element
Workshop #1
14 Feb.
Cultural Affairs
Commission
17 Feb.
Housing Element
Workshop #2
18 Feb.
Youth Advisory
Commission
20 Feb.
Pop-up Event in Akoma
Market
22 Feb.
Community and
Economic
Development
Committee (CED)
Study Session
28 Feb
Mayor's Commission
on Persons with
Disabilities
FOR EVENT DETAILS
VISIT OUR WEBSITE:
BIT .L Y/OAKLANDGPU
15 HOUSING
ELEMENT UPDATE
16 WHAT IS A HOUSING ELEMENT?
17 City’s blueprint for housing the City’s residents, at all economic levels including low income and households
with special needs.
Subject to state approval
Covers 8 years (2023-2031)
Must accommodate forecasted need
Regional Housing Need Allocation (RHNA)
Income Group 5th Cycle RHNA
(2015-2023) How much progress was made? 6th Cycle RHNA
(2023-2031)
Number Percent Number Percent Number Percent
Extremely-Low-
Income (>30%
AMI)1
1,030 7.0%
888 43%
3,256 12.4%
Very-Low-Income
(30%-50% AMI)1 1,029 7.0% 3,255 12.4%
Low-Income (50%-
80% AMI) 2,075 14.0% 541 26% 3,750 14.3%
Moderate-Income
(80%-120% AMI) 2,815 19.1% 77 3% 4,457 17.0%
Above-Moderate-
Income (>120%
AMI)
7,816 52.9% 13,626 174% 11,533 43.9%
T otal 14,765 100.0% 15,122 102% 26,251 100.0%
1. Extremely-low-income housing need is assumed to be 50 percent of total very -low-income housing need.
2. AMI – Area Median Income. Per HCD, the 2021 AMI for Alameda County was $125,600. 2023-2031 Future Housing Need
18 HOUSING ELEMENT CONTENT
Background Analysis
Evaluation of the 2015-2023 Housing Element
(Accomplishments)
Housing Needs Assessment
Assessment of Fair Housing
Housing Resources and Opportunities
Housing Constraints
Opportunities for Energy Conservation
Housing Sites Inventory
Housing Action Plan
19 20
HOUSING ELEMENT:
NEW REQUIREMENTS
More equitable
distribution of housing
within Oakland
Assembly Bill 686 adds
a fair and equitable
housing requirement
Plan for affordable
housing in high
resource areas
21 INITIAL FINDINGS
22 REQUIREMENTS: HOUSING ACCOMPLISHMENTS
The City must review the current Housing Element to
evaluate the following:
the appropriateness of housing goals, objectives, and policies;
the effectiveness of the Housing Element in the
attainment of the community’s housing goals and
objectives; and
the progress in implementation of the Housing
Element.
Assessment of the cumulative impact of the Housing
Element on special needs groups.
23 PRELIMINARY FINDINGS:
HOUSING ACCOMPLISHMENTS
Accomplishments
Success in implementing special needs housing,
emergency shelters, transitional housing, senior
housing, and housing for extremely-low-income
households, though affordability challenges have
increased significantly
Existing fair housing actions and affordable housing
development actions are effective
24 PRELIMINARY FINDINGS:
HOUSING ACCOMPLISHMENTS
Future Policy Considerations
The City has fallen short of meeting its 5th Cycle
RHNA, for all categories except the above-moderate-
income housing group
Need for consolidation of the existing 131 actions
across seven goals and 46 policies
New or revised programs related to identified needs
and constraints
25 REQUIREMENTS:
HOUSING
NEEDS
The housing needs analysis provides a
comprehensive assessment of the various
factors that influence and affect the City’s
housing needs which include:
Population Characteristics
Household Characteristics
Employment Characteristics
Special Needs Groups
Housing Stock Characteristics
Housing Costs and Affordability
Assisted Housing at Risk of Conversion
26 REQUIREMENTS: HOUSING NEEDS
Maximum Income Level
Household
Size
Extremely
Low Very Low Low Median Moderate
1 Person $28,800 $47,950 $76,750 $87,900 $105,500
2 Persons $32,900 $54,800 $87,700 $100,500 $120,550
3 Persons $37,000 $61,650 $98,650 $113,050 $135,650
4 Persons $41,100 $68,500 $109,600 $125,600 $150,700
5 Persons $44,400 $74,000 $118,400 $135,650 $162,750
6 Persons $47,700 $79,500 $127,150 $145,700 $174,800
7 Persons $51,000 $84,950 $135,950 $155,750 $186,850
8 Persons $54,300 $90,450 $144,700 $165,800 $198,900
27 HCD Income Levels by Household Size in Alameda County, 2021 Source: HUD Income Limits 2021
PRELIMINARY FINDINGS: HOUSING NEEDS
Household Income: In the city, nearly a quarter of households make less than 30 percent of AMI. This is compared to 15.5 percent of households in Alameda County and 14.7 percent in the Bay Area overall. Cost Burden (monthly shelter costs > 30 percent of a household’s income): Nearly half of all residents experience some level of cost burden, although lower-income households and renters see higher than average rates.
Housing T enure: Households considered to be American Indian or Alaskan native, other race or multiple races, Hispanic or Latinx, and Black or African American are largely renter-occupied, as are lower-income households. 28
PRELIMINARY FINDINGS: HOUSING NEEDS
29 Owner-Occupied Renter-Occupied
Region Number Percent Number Percent
Oakland 66,177 40.7% 96,242 59.3%
Alameda County 308,891 53.5% 268,286 46.5%
San Francisco 136,239 37.6% 226,115 62.4%
San Jose 184,600 56.8% 140,514 43.2%
Fremont 45,912 60.1% 29,775 39.9%
Bay Area 1,531,955 56.1% 1,199,479 43.9%
Household T enure by Region, 2019
Source: ABAG -MTC Housing Needs Data Workbook (U.S. Census Bureau, American Community Survey 5 -Year Data (2015 -2019)) PRELIMINARY FINDINGS: HOUSING NEEDS
Housing Conditions: About 0.3
percent of owners lack complete
kitchen facilities; 1.9 percent of renters
do. About 0.2 percent of owners lack
complete plumbing facilities while 1.02
percent of renters do.
Overcrowding: The city experiences
slightly higher rates of overcrowding
(8.41 percent) than does the county
(7.87 percent) or the region (6.9
percent).
30 Overcrowding by Race/Ethnicity, 2019
Source: ABAG -MTC Housing Needs Data Workbook (U.S. Census Bureau, American Community Survey 5-Year Data (2015 -2019), Table B25014)
PRELIMINARY FINDINGS: HOUSING NEEDS
31 Ownership Affordability Gap for the
T ypical Household, 2020
Rental Affordability Gap for the
T ypical Household, 2020
Source: Zillow Home Value Index, December 31, 2020; Dyett & Bhatia, 2021 NOTE: Gross rent is the contract rent plus the estimated average monthly cost of utilities and fuels.
Median gross rent divides the gross rent distribution into two equal parts: one -half of the cases falling below the median gross rent and one -half above the median.
Source: American Community Survey 5 -Year Data (2015 -2019); HUD, Fair Market Rent, 2019 ; Dyett & Bhatia, 2021
PRELIMINARY FINDINGS: HOUSING NEEDS
32 Preliminary findings regarding statutorily defined groups with special housing needs:
Extremely-Low-Income Residents. Oakland’s poverty rate (16.7%) is higher than the county (9.9%). Households more likely to be extremely low income include Black households (35%) and non-Hispanic Asian/API households (34%) Elderly Residents. Over half of elderly renters are considered extremely-low- income.
Persons with Disabilities. Slightly higher proportion of persons with a disability in Oakland compared to the county and region
PRELIMINARY FINDINGS: HOUSING NEEDS
33 Large Families. A greater proportion of large families have incomes that are less than 100% of AMI compared to all other household types in Oakland. Female-Headed Households. Oakland has a greater share of female-headed households (13.4 percent) than either Alameda County (11.1 percent) or the Bay Area (10.4 percent).
Persons Experiencing Homelessness. Point-in-time counts of unhoused individuals increased 27% from 2017 to 2019.
Farmworkers. While there are a number of students considered migrant workers in the county and Bay Area, there are none in the city REQUIREMENTS:
AFFIRMATIVELY
FURTHERING
FAIR HOUSING
Affirmatively furthering fair housing means “taking
meaningful actions, in addition to combating
discrimination, that overcome patterns of segregation
and foster inclusive communities free from barriers
that restrict access to opportunity” for persons of color, persons with disabilities, and other protected classes.
AFFH analysis must cover:
Fair housing enforcement and capacity
Segregation and integration
Racially and ethnically concentrated areas of poverty and affluence
Disparities in access to opportunity
Disproportionate housing needs and displacement
risk
34 PRELIMINARY FINDINGS: AFFIRMATIVELY FURTHERING FAIR
HOUSING
Population Growth by
Race/Ethnicity, Oakland: 2010-2019
Largest percent increases: Some other
race/T wo or more races, American
Indian and Alaska Native, White,
Hispanic/Latinx
Black or African American population
declined 7.4%
35 SEGREGATION BY
RACE/ETHNICITY
Most tracts identified by the
Urban Displacement Project
(UDP) are a mix of three or
four races/ethnicities.
Across the city, only two
tracts are considered
diverse (a mix of five
races/ethnicities) according
to UDP methodology.
36 ACCESS TO
OPPORTUNITY
Access to positive economic,
educational and environmental
outcomes for low-income
residents
Most tracts are Low Resource,
and they surround High
Segregation and Poverty tracts
Oakland is only place in
Alameda County with High
Segregation and Poverty tracts
Highest Resource areas
clustered in north corner near
hills
37 GENTRIFICATION
AND
DISPLACEMENT
TYPOLOGY
▪ Nearly half of all
households in Oakland
live in tracts at risk of
or experiencing
gentrification
▪ Almost a quarter live in
tracts susceptible to or
experiencing
displacement
38 PRELIMINARY FINDINGS: AFFIRMATIVELY FURTHERING FAIR
HOUSING
Most public housing units and
housing choice voucher use occurs in
Low Resource or High Segregation
and Poverty tracts
Subsidized is more distributed
throughout opportunity areas
(except Highest Resource); most
units in Downtown and West
Oakland
Rates of cost burden are highest for
non-Hispanic Black or African
American households, followed by
Hispanic or Latinx households
39 Cost Burden by Race in Oakland
Source: ABAG-MTC Housing Needs Data Workbook (U.S. Department of Housing and Urban Development (HUD), Comprehensive Housing Affordability Strategy (CHAS) ACS tabulation, 2013-2017 release) REQUIREMENTS : HOUSING CONSTRAINTS
Identify and analyze potential and actual governmental and non - governmental constraints to the maintenance, improvement, or development of housing
Governmental constraints
codes and enforcement
on-site/off-site improvement standards
land-use controls
fees and exactions
processing and permitting procedures
Non-governmental constraints
Environmental constraints
infrastructural and market constraints
Neighborhood sentiment
40 PRELIMINARY FINDINGS: CONSTRAINTS (GOVERNMENTAL)
Rate of building permit approvals
comparable to neighboring communities,
although lower- and moderate-income
housing approval falls short of the RHNA.
Limited staffing capacity.
Lack of funding sufficient to meet the full
need for affordable housing.
Permit processing timelines are increased
by a lack of objective design guidelines.
Requirement of conditional use permit
in some zones may pose a constraint (i.e.,
RM-1, RM-2, RM-3)
Other zoning regulation standards, such
as parking minimums, open
space requirements, and height
restrictions, may pose constraints on
constructing housing up to the maximum
allowable density.
Development impact fees and
infrastructure improvement requirements
add costs to the development of housing.
Consider additional stakeholder
and community input
41 BUILDING PERMIT APPROVAL BY PERCENTAGE OF
THE RHNA, 2015-2020
42Source: HCD, 5th Cycle Annual Progress Report Permit Summary, 2021
PRELIMINARY FINDINGS: CONSTRAINTS (NON-
GOVERNMENTAL)
Environmental constraints include seismic risk,
flooding and sea level rise, wildfire risks (including
very high fire hazard severity zones (VHFHSZ)), air
quality, and the presence of hazardous materials
High construction, labor, and land costs
Financing availability
Neighborhood sentiment impeding the development
of affordable housing.
43 REQUIREMENTS:
HOUSING SITES
Prepare an inventory of land suitable for
residential development by RHNA income
category
Ensure that selected sites meet State
requirements
Considerations for low-income sites include
existing use, site size, environmental
constraints, permitted maximum densities, use
in a previous planning cycle, and access to
opportunity
44 REQUIREMENTS:
HOUSING SITES
Projects that have been approved, permitted, or
received a certificate of occupancy since the
beginning of the RHNA projection period may
be credited toward meeting the RHNA
allocation based on the affordability and unit
count of the development
Projection period: June 30, 2022 to December
31, 2030
Projected accessory dwelling unit (ADU)
development and anticipated SB9 lot splits may
also be credited towards the RHNA
45 PRELIMINARY
FINDINGS:
HOUSING SITES
Developed single spreadsheet to consolidate sites
identified by City staff
City vacant sites inventory
RHNA cycle 5 sites
City owned surplus sites
Major projects
BART AB2923 sites
Specific Plan opportunity sites, as identified by staff (BVSP , LMSAP , WOSP , DOSP)
Identified additional potential sites based on zoning Brought data into GIS to visualize preliminary site
locations
Full analysis of site suitability and capacity is
forthcoming
46 PRELIMINARY FINDINGS: HOUSING SITES
Major project capacity
based on Major Project
List affordability
estimates
Affordability estimates
may be proposed by the
developer and are
reviewed and assessed by
the Planning Department
and City HCD
47 Major Projects Preliminary Capacity Estimates
Source: City of Oakland, Major Projects List, January 18, 2022; Dyett & Bhatia, 2022 Low- and
Very-Low-
Income1
Moderate-
Income
Above-
Moderate-
Income
T otal
RHNA Cycle 6 10,261 4,457 11,533 26,251
Approved Permits
Capacity2
2,608 184 16,122 18,914
Shortfall (-)/Surplus
(+)
-7,653 -4,273 +4,589 -7,337
Other Likely
Permits Capacity3
267 97 1,218 1,582
NOTES:
1. Includes extremely -low-income capacity estimates.
2. Includes projects in the Major Project List with permit status of Approved, Approved -Pending Appeal, and Extended.
3. Includes projects in the Major Project List with permit status of Filed, Under Review, Accepted, Assigned, and Complete. 48 49
DISCUSSION
50 51
DISCUSSION – POLICIES AND PROGRAMS
• Based on past housing accomplishments, what new policies, actions, or programs would you like the Housing Element to pursue?
• Inclusionary housing vs. in-lieu fees
• Addressing homelessness
• Workforce housing
• Preservation and rehabilitation of existing housing
• Protections and anti-displacement measures
• SB 9/Fourplexes in single family zones (Resolution 88554) • Changes to parking requirements/other development regulations • SB10/up to 10 units per parcel near transit rich or urban infill site • Others?
52 53
PRELIMINARY
FINDINGS
FROM
HOUSING
SITES MAP
Specific Plan sites represent opportunity
sites, as identified by City staff
Opportunity sites along key
transportation corridors; 14th and 19th
ST BART stops
Several sites left over from RHNA cycle 5
along International Boulevard
Major residential and mixed use projects
at Brooklyn Basin, around West Oakland
BART , along Broadway
Other sites near BART stations: Lake
Merritt, Rockridge, Fruitvale, Coliseum
54 DISCUSSION –
HOUSING SITES
• Does this general pattern of sites make sense for
housing site locations, particularly keeping
in mind different housing need tiers (very-low; low;
moderate; above moderate)? These are sites already
mostly zoned for housing:
• Within specific plan areas
• On transit corridors
• Key other sites that are City-owned/identified as
suitable for housing
• Are there other opportunities for housing elsewhere
in the City (beyond sites identified on the map)? Note:
There will be opportunities for additional housing
sites (beyond eight years) identified as part of the
Land Use Element Update.
• Tradeoffs: housing sites vs. commercial land vs.
industrial land
• Proximity to hazards
55 THANK YOU!
VISIT THE GENERAL PLAN UPDATE WEBSITE FOR
MORE INFORMATION AND TO SIGN-UP FOR
REGULAR UPDATES:
WWW .OAKLANDCA.GOV/TOPICS/GENERAL-
PLAN-UPDATE
56