January 24, 2023
Community Development
DATE: January 24, 2023
TO: Mayor Martinez and Members of the City Council
FROM:
Lina Velasco, Director of Community Development
Hector J. Rojas, Planning Manager
Andrea Villarroel, Planner II
Subject:
6th Cycle Housing Element Adoption Hearing
FINANCIAL IMPACT: There is no fiscal impact related to adoption of this resolution.
PREVIOUS COUNCIL
ACTION:
None
STATEMENT OF THE
ISSUE:
The City of Richmond (City) has prepared an update to
its Housing Element, which will cover an eight-year
period between 2023 and 2031 (6th Cycle planning
period). The City's Housing Element is a state-required element and is one of 15 elements that comprise the
City’s General Plan. The 6th Cycle Housing Element
includes housing-related goals, policies, and programs to address the City’s existing and future housing needs. It also identifies changes in the City’s demographics,
economics, and housing supply; analyzes housing
constraints and resources; creates a plan that identifies sites for potential housing; and updates existing and/or develops new housing goals, objectives, policies, and
programs as appropriate.
AGENDA
REPORT
January 24, 2023
RECOMMENDED ACTION:
ADOPT a resolution adopting the Addendum to the
Richmond General Plan 2030 Environmental Impact
Report (SCH#2008022018), adopting a General Plan
Amendment to repeal the Richmond General Plan 2015-
2023 Housing Element, and adopting the Housing
Element Update for the 2023-2031 (6th cycle) planning
period (PLN22-130) – Community Development
Department (Lina Velasco 510-620-6841/Hector Rojas
510-621-1220).
BACKGROUND:
The Housing Element is part of the City’s General Plan, and it identifies policies and programs to meet the housing needs of the City’s current and future residents. State law requires that every California city and county adopt a Housing Element every eight years. Additionally, the California Department of Housing and Community Development (HCD) reviews and determines whether each jurisdiction’s Housing Element substantially complies with State Housing Element Law. The City’s current Housing Element was adopted and certified in May 2015, and covers the 5th Cycle planning period (2015-2023). The 6th Cycle Housing Element will cover the 2023-2031 planning period and must be adopted by January 31, 2023 (Exhibit B of Attachment 1). The 6th Cycle Housing Element includes several major components:
1. Policy and Programs Review: Assessment of progress in implementing the policies and programs from the prior Housing Element.
2. Housing Needs Assessment: Analysis of demographic data, economic trends, and current housing inventory and characteristics. The analysis also considers the needs of special needs populations (e.g., the unhoused, large households, low income, seniors, female-headed households, etc.).
3. Housing Constraints Assessment: Analysis and approach to addressing existing and potential governmental and nongovernmental constraints to the development of housing.
4. Adequate Sites Inventory: Identification of housing sites available for development or redevelopment, also ensuring sufficient capacity to accommodate the City’s Regional Housing Needs Allocation (RHNA).
5. Analysis of Fair Housing (Affirmatively Furthering Fair Housing): Analysis of existing fair housing and segregation issues and the plan to address any identified disparities in housing needs, displacement, or access to opportunity.
6. Housing Resources Assessment: Review of administrative and financial resources available to support the development, preservation, and rehabilitation
January 24, 2023
of housing.
7. Implementation Plan: Identification of goals, policies, and programs dedicated to meeting the City’s housing needs.
The City’s Housing Element Update triggers state laws (Senate Bills 1241 and 1000) requiring the City to amend its Public Safety and Noise Element to add information on fire risks and create a new Environmental Justice Element. The Environmental Justice Element and amendments to the Public Safety and Noise Element are underway and are anticipated to be considered by the City Council by April 2023.
DISCUSSION:
6th Cycle Housing Element
The 6th Cycle Housing Element aims to achieve several housing related goals that include:
Promoting new housing construction to create more equitable and affordable options that meet Richmond’s RHNA targets;
Facilitating different housing types to accommodate housing needs of moderate- and lower income households and create inclusive neighborhoods for all income levels;
Removing constraints to the development of housing;
Creating housing opportunities for people with special needs, including seniors, persons with disabilities, single-parent households, first-time homebuyers, large families, and unhoused individuals and families;
Conserving and improving the existing housing stock to enhance quality of life and provide greater housing stability and community resiliency; Promoting fair housing access and opportunities for all persons; and Encouraging energy and resource conservation and sustainability measures.
The 6th Cycle Housing Element is comprised of four sections that outline current and future housing needs of the community, housing resources, and a housing plan. The housing plan builds upon and revises the goals, policies, and programs from the 5th Cycle Housing Element to ensure that the City can meet the housing needs of all Richmond residents through the 6th Cycle. The 6th Cycle Housing Element is supported by seven appendices, which provide more detailed information on the topics discussed in the element. Table 1 below includes a list of the sections and appendices comprising the 6th Cycle Housing Element:
Table 1: Housing Element Sections and Appendices
Sections Appendices
I - Introduction
II – Projected Housing Need
III – Housing Resources
Appendix A: Housing Needs Assessment
Appendix B: Sites Inventory and Methodology
Appendix C: Housing Constraints
January 24, 2023
Table 1: Housing Element Sections and Appendices
Sections Appendices
IV – Housing Plan Appendix D: Existing Programs Review
Appendix E: Public Participation Summaries
Appendix F: Affirmatively Furthering Fair Housing
Assessment
Appendix G: Housing Resources
Regional Housing Needs Allocation (RHNA)
Every city in California receives a target for new housing, called the RHNA, which includes housing at all income levels. Cities do not need to ensure these units are built, but they do need to establish the proper zoning and address constraints so the private sector can build the targeted number of units.
For the new RHNA cycle, the Association of Bay Area Governments (ABAG) allocated jurisdiction-specific housing goals based on the projected 2050 population growth, proximity to jobs, transportation, and the presence of high-opportunity areas. “High- opportunity areas” are a new concept this cycle, and they are defined as residential neighborhoods with high property values and access to good schools, parks, and jobs within the greater region. The RHNA targets include total numbers of new homes that should be constructed, which are affordable to households in different income categories (very-low income to above-moderate income). The City’s income-specific RHNA targets for the previous and current cycles can be seen in Table 2 below:
Table 2: RHNA Allocation for Richmond
Cycle Very Low Low Moderate Above Moderate Total
5th
(2015-2023)
438 305 410 1,282 2,435
6th
(2023-2031)
840 485 638 1,651 3,614
Richmond’s RHNA for the 6th Cycle is higher than in previous cycles due to the new State law changes. For the 6th Cycle, the State’s methodology changed to account for unmet existing need, rather than only the projected housing need. This allocation is intended to address past housing deficits as well as projected demand. In developing its RHNA targets, the State also considered overcrowded households (i.e., households with more than one person per room), cost-burdened households (those paying more than 30 percent of their income for housing), and a target vacancy rate (minimum of five percent) for a healthy housing market. These factors contributed to a higher RHNA target for the 6th Cycle. Table 3 below demonstrates that the City has the capacity to meet its 6th Cycle RHNA targets through construction of accessory dwelling units (ADUs), already approved or entitled projects, projects currently under consideration
January 24, 2023
(preliminary pipeline projects), and development of opportunity sites identified in the sites inventory for the 6th Cycle Housing Element.
Table 3: RHNA Allocation and Residential Development Potential Very Low Low Moderate Above Moderate Total
6th Cycle RHNA 840 485 638 1,651 3,614
ADU 155 155 155 52 517
Approved/
Entitled Projects
172 371 257 2,569 3,369
Preliminary
Pipeline Projects
280 132 78 1,019 1,509
Sites Inventory 416 216 198 830
Total Capacity 1,681 706 3,838 6,225
Goals, Policies, and Programs
The 6th Cycle Housing Element aims to encourage the production of new housing to meet the city’s RHNA targets and increase housing for underrepresented populations.
This would be done by adopting a series of goals and policies that support housing programs related to key issue areas found throughout the community outreach process.
The key issue areas include focusing on increasing available housing, protecting existing housing stock, addressing specific housing needs and the needs of vulnerable populations, and promoting fair housing access. Table 4 below includes a list of specific goals and policies included in the 6th Cycle Housing Element.
Table 4: 6th Cycle Housing Element Goals and Policies
Goals Policies
Goal 1: Promote new housing
construction to create more equitable
and affordable options that meet
Richmond’s Regional Housing Needs
Allocation (RHNA).
Policy 1.1 Housing Element Implementation. Coordinate and monitor the implementation of the City’ s Housing Element Policy 1.2 Adequate Supply of Housing Sites. Ensure an adequate supply of housing sites to achieve the City’s Regional Housing Needs Allocation numbers for the 2023-2031 planning period
Goal 2: Facilitate different housing
types to accommodate housing needs
of moderate- and lower-income
households and create inclusive
neighborhoods for all income levels.
Policy 2.1 Supply of Affordable Housing. Promote the development of homes that are affordable to extremely low, very low, low, and moderate-income households in all new residential developments as well as in existing single-family neighborhoods.
Policy 2.2 Variety of Housing Choices and Access. Promote a variety of housing types that meet the different lifestyle and life cycle needs of residents including young adults, young couples and single professionals, small and large families, empty-nesters, and older couples.
Policy 2.3 Funding for Affordable Housing Development. Identify and secure funding sources to assist with affordable housing development.
Policy 2.4 Balanced Neighborhoods. Encourage a mix of affordable and market rate housing within neighborhoods.
January 24, 2023
Table 4: 6th Cycle Housing Element Goals and Policies
Goals Policies
Policy 2.5 Rent Subsidies for Affordable Housing. Identify and secure funding to provide rent subsidies that assist extremely low and very low-income families, seniors, and persons.
Goal 3: Remove constraints to the
development of housing.
Policy 3.1 Reduction of Housing Production Constraints.
Implement measures to remove or reduce constraints to housing production in Richmond.
Policy 3.2 Collaboratively Address Constraints. Consult with stakeholders (e.g., housing organizations, for- and non-profit developers) to identify and seek solutions to address constraints to housing production.
Goal 4: Create housing opportunities
for people with special needs, including
seniors, persons with disabilities, single-
parent households, first-time
homebuyers, large families, unhoused
individuals and families.
Policy 4.1 Senior Housing Development. Actively seek to expand the development of affordable housing for extremely low, very low, low and moderate-income seniors.
Policy 4.2 Accessible Housing Opportunities. Actively seek to expand housing opportunities for persons with disabilities in new and existing single-family and multifamily developments.
Policy 4.3 Child Daycare. Actively seek to expand child daycare opportunities to assist single-parent and dual-income households, especially those who are extremely low, very low, low, and moderate income.
Policy 4.4 First-Time Homebuyer Opportunities. Actively seek to expand housing opportunities for extremely low, very low, low, and moderate income first-time homebuyers.
Policy 4.5 Large-Family Housing. Actively seek to expand housing opportunities for large families that are extremely low, very low, low, and moderate income.
Goal 5: Conserve and improve the
existing housing stock to enhance
quality of life and provide greater
housing stability and community
resiliency.
Policy 5.1 Preservation and Modernization of Public Housing.
Preserve and systematically modernize Richmond’s public housing developments.
Policy 5.2 Conservation of At-Risk Affordable Housing Units.
Facilitate the conservation of subsidized housing developments that are at risk of converting to market rate housing.
Policy 5.3 Abatement of Foreclosures, Substandard Housing, and Blight. Improve the physical, social, and economic health of neighborhoods by addressing foreclosures, substandard housing conditions, and neighborhood blight through a balanced program of education, code enforcement, inspections, acquisition, and financial assistance.
Goal 6: Promote fair housing access
and opportunities for all persons.
Policy 6.1 Tenant Protections. Explore reasonable and enforceable regulations that protect tenants from evictions and exorbitant rent increases and refer residents with issues such as foreclosures, landlord-tenant disputes, and unlawful evictions, and housing discrimination to counseling services.
Policy 6.2 Discrimination Prevention. Identify, monitor, and prevent discriminatory housing practices.
Policy 6.3 Displacement Avoidance. Create housing stability for current residents by supporting limited equity and community ownership models and facilitating the preservation and production of affordable housing units.
January 24, 2023
Table 4: 6th Cycle Housing Element Goals and Policies
Goals Policies
Policy 6.4 Resources Alignment. Prioritize programming and align funding and resources, including City staff, with highest needs.
Policy 6.5 Lower Income Family Needs. Assess unit size production of publicly subsidized units and align target unit sizes of publicly funded and private development projects with the needs of lower income families with children as feasible.
Goal 7: Encourage energy and
resource conservation and sustainability
measures.
Policy 7.1 Green Building Measures and Practices. Promote the incorporation of green building measures and practices in new residential development projects and existing residential structures.
Community Engagement and Outreach
The City led a robust community engagement and outreach process throughout the year by reaching out to stakeholders and the public and informing them of the City’s ongoing planning efforts and inviting them to give input on the community’s housing needs and priorities. Community outreach for the 6th Cycle Housing Element was conducted through a variety of methods to ensure access and participation by all economic segments of the population, but with a particular focus on outreach to traditionally underrepresented groups as required by Assembly Bill (AB) 686. AB 686 requires that community outreach efforts for the 6th Cycle Housing Element process include public housing authorities, housing and community development providers, advocacy groups (local, regional, and State level), members of protected classes, community members who are lower income, persons and households with special needs, fair housing agencies, independent living centers, regional centers, and homeless service agencies. The methods used for community engagement and outreach for the 6th Cycle Housing Element are summarized in Table 5 below.
Table 5: Community Engagement and Outreach Methods
Event Date Mode Description
Study Session
with the Planning
Commission
May 19,
2022
Online This session served as an introductory, educational, and expectation-setting meeting. The study session’s purpose was to provide background information and context (e.g., purpose of the Housing Element update, state law and
requirements, process and engagement strategy,
relationship between the Housing Element update and the Housing Equity Roadmap) and offered an opportunity for
early input.
Stakeholder
Interviews
February –
June 2022
Online Consultant teams conducted stakeholder interviews and focus groups with representatives from City and County
departments, elected and appointed local officials,
neighborhood councils and associations, and others.
Additionally, interviews with housing organizations, housing service providers, affordable housing developers, business and private development companies took place.
Pop-Ups April –
December
In-Person Staff and consultant team conducted in-person pop-ups to engage residents throughout the City. Pop-ups informed
residents about the Housing Element process and related
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Table 5: Community Engagement and Outreach Methods
Event Date Mode Description
2022 General Plan amendments and offered residents the
opportunity to subscribe for email updates about upcoming public meetings.
Resident
Advisory Council
(“RAC”)
June –
September
2022
Hybrid A Resident Advisory Group (RAC) was formed to gather feedback on housing challenges and solutions and to ensure that key issues, data, and housing policies identified in the Housing Element update aligned with community concerns
and lived experiences. The RAC was made up of 10 City
resident members or other constituents (i.e., business
operators) and met 6 times either in person or virtually.
Community
Workshop
October 29,
2022
In-Person The purpose of the workshop was to share information on the Housing Element update, answer questions, and gather community input on relevant issues. This was also an
opportunity to inform the residents that the public review period for the draft Housing Element was open and of the many ways they could share input.
Public Review
Period
October 21 –
November
21, 2022
Online The public review period for the draft Housing Element update was open for 30 days as mandated by State law. The City offered three ways to submit comments: via email, mail, or an online comment form.
Public Hearings January
2023
Online Prior to its adoption, the Housing Element update will have had two public hearings, one with the Planning Commission (which occurred on January 5, 2023) and one with City
Council (scheduled for January 24, 2023).
Environmental Review
The City, acting as Lead Agency, certified an Environmental Impact Report (EIR) (SCH# 2008022018) as part of General Plan Update in 2012. The City has prepared an Addendum to the 2012 EIR, which describes the 6th Cycle Housing Element and compares its impacts to those identified in the 2012 General Plan EIR (Exhibit A of Attachment 1). The analysis demonstrates that the proposed project does not require the preparation of a subsequent or supplemental EIR per the requirements of the California Environmental Quality Act (CEQA) statutes (Public Resources Code Section 21000 et seq.) and the CEQA Guidelines (California Code of Regulations 15000 et seq.). More specifically, the 6th Cycle Housing Element would not result in a substantial increase in the severity of previously identified significant effects, since the 6th Cycle Housing Element would not change any of the existing General Plan land use designations. In addition, new development proposed and considered during the 6th Cycle Housing Element would be subject to the same standards and review procedures currently in place, which includes CEQA review on a project-specific basis. The Richmond General Plan 2030 EIR is available at www.ci.richmond.ca.us/2608/General- Plan-2030 (Attachment 2).
January 24, 2023
Planning Commission Recommendation
On January 5, 2023, the Planning Commission held a public hearing to consider a recommendation to the City Council regarding the Addendum to the General Plan 2030 EIR and adoption of the 6th Cycle Housing Element. The Planning Commission adopted Resolution No. 23-01 recommending: 1) adoption of the Addendum to the General Plan EIR, 2) repealing the 5th Cycle Housing Element, and 3) adopting the 6th Cycle Housing Element with some specific modifications (Attachment 3). The first modification recommended by the Planning Commission was that the proposed time frame for implementation of Program 1.I (Minimum Densities) and Program 2.B (Development Impact Fees) be moved to an earlier time within the 6th Cycle Housing Element planning period. The only other modification recommended was to add additional program language in the Housing Element to highlight the importance of working with residents and property managers to identify and address any deteriorating housing conditions at multi-family common-interest and other residential developments that could eventually threaten the life and safety of its residents. The Draft 6th Cycle Housing Element, Exhibit B of Attachment 1, is redlined to show how the modifications recommended by the Planning Commission have been incorporated into the document.
CONCLUSION:
City staff recommends the City Council adopt the draft Resolution in Attachment 1 adopting the Addendum to the General Plan EIR, repealing the 2015-2023 Housing Element, and adopting the 6th Cycle Housing Element.
ATTACHMENTS:
Attachment 1: Draft City Council Resolution
Exhibit A: Addendum to the Certified General Plan EIR
Exhibit B (with Appendices A – G): Draft 6th Cycle Housing Element (redlined to show the Planning Commission’s recommended changes) Exhibit C: Compliance with Statutory Provisions
Attachment 2: Richmond General Plan 2030 EIR
(available from: www.ci.richmond.ca.us/2608/General-Plan-2030) Attachment 3: Planning Commission Resolution No. 23-01