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RiversideCA.gov
1 UNIVERSITY AVE DENSITY TRANSFER
PILOT PROGRAM
Community & Economic Development Department
City Council
April 21, 2026
RiversideCA.gov
2 What is a Density Transfer Program?
• The transfer of residential
developmental rights from one
property (donor site) to another
property (receiver site)
BACKGROUND
• Donor sites: properties w/unused or
underutilized residential density
• Receiver sites: properties that would
benefit from increased residential
density
Infographic Credit: NYC.gov
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RiversideCA.gov
3 • Bank method: Donor
sites deposit units into a
development bank, to
be later withdrawn by
receiver sites
BACKGROUND
• Direct transfer method:
Donor sites directly send
units to specific receiver
sites
Donor
Site Bank Receiver
Site
Donor
Site
Receiver
Site
RiversideCA.gov
4 BACKGROUND
Early 2020s:
Density transfer
programs recognized as
a housing strategy in the
Housing Element
July 24, 2023:
Density transfer program
presented to Housing &
Homelessness Committee
(HHC) as one of six housing
strategies to develop using
state funds.
2025:
Feasibility of
University Avenue
Density Transfer Pilot
Program explored.
September 8, 2025:
Pilot program options
presented to Land Use
Committee (LUC). LUC directs
development of program
using bank and direct transfer
methods to present to CC.
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5 FOCUS AREA: UASP CORRIDOR
• Established in 1993
to revitalize
University Avenue
from Park Avenue
to I-215/SR-60
• Challenges
developing housing
Map Credit: Sol Ramirez
RiversideCA.gov
6 FOCUS AREA: UASP CORRIDOR
• Most
designations
allow
residential
development
• Most
development is
nonresidential
Map Credit: Sol Ramirez
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7 FOCUS AREA: UASP CORRIDOR
• Maximum
residential
capacity: 6,819
units
• Less than 10% of
residential
capacity built
Map Credit: Sol Ramirez
RiversideCA.gov
8 FOCUS AREA: UASP CORRIDOR
Map Credit: Sol Ramirez
• Program emphasis:
developing city-
owned surplus sites
and Housing
Element
Opportunity Sites
w/o changes to
General or Specific
Plan
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9 DENSITY TRANSFER CASE STUDIES
Common FindingsCitiesMethod
• Purpose: build out/prevent loss of residential
capacity (SB 330)
• Bank is seeded from unused residential
capacity of new development
• Can be combined w/other density bonuses
• Often in specific plan areas
Bank
• Purpose: reallocate residential density to sites
better suited for residential development
• City mediates and/or reviews transfers as or
after they occur
• Often in specific plan areas
Direct
Transfer
RiversideCA.gov
10 PROGRAM BASICS
Only open to parcels in the University Avenue
Specific Plan Corridor
Eligible donor sites: Most parcels, except those
developed to their residential capacity, those
without residential capacity, & most Housing
Element sites
Eligible receiver sites: City-owned and Housing
Element sites
Use of bank and direct transfer methods. Begin
bank w/capacity from surplus sites.
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11 BANK METHOD-DEPOSITS
Units are to be
voluntarily or
involuntarily
(due to
development)
surrendered
Submit
Request to
Transfer Units
Deed restriction
documents transfer &
surrender of residential
development rights
UNITS
DEPOSITED
PROCESS:
Request
approved
RiversideCA.gov
12 BANK METHOD-DEPOSITS
Five units must
be surrendered
Submit
Request to
Transfer Units
Deed restriction
documents transfer &
surrender of residential
development rights
FIVE UNITS
DEPOSITED
EXAMPLE: Parcel A (Donor) has a residential capacity of five units. An applicant wants to build a non-residential development on the parcel (zero units).
Request
approved
EXAMPLE: Parcel A (Donor) has a residential capacity of five units. An applicant wants to build three units on the parcel.
Two units must
be surrendered
Submit
Request to
Transfer Units
Deed restriction
documents transfer &
surrender of residential
development rights
TWO UNITS
DEPOSITED
Request
approved
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RiversideCA.gov
13 BANK METHOD-WITHDRAWALS
Applicant seeks
to withdraw units
Submit Request to
Transfer Units
UNITS
WITHDRAWN
PROCESS:
Request approved
Withdrawals are on a first-come, first-serve basis.
City-owned sites will have priority in withdrawing units.
RiversideCA.gov
14 BANK METHOD-WITHDRAWALS
EXAMPLE: Parcel B (receiver) has a residential capacity of five units.
An applicant wants to build residential units on the parcel but realizes they need an additional three units for the project to be feasible. They want to draw the units from the bank.
Applicant seeks
to withdraw three
units
Submit Request to
Transfer Units
THREE UNITS
WITHDRAWNRequest approved
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RiversideCA.gov
15 DIRECT TRANSFER METHOD
Receiver seeks
units from
donor
Submit
Request to
Transfer Units
Deed restriction
documents transfer &
surrender of residential
development rights for
donor
UNITS
TRANSFERRED
PROCESS:
Request
approved
Density
Transfer
Agreement
drafted
RiversideCA.gov
16 DIRECT TRANSFER METHOD
Parcel B seeks
three units from
Parcel A
Submit
Request to
Transfer Units
Deed restriction
documents transfer &
surrender of residential
development rights for
Parcel A
THREE UNITS
TRANSFERRED
FROM PARCEL A
TO PARCEL B
Density
Transfer
Agreement
drafted
EXAMPLE: Parcel B (receiver) has a residential capacity of five units.
An applicant wants to build residential units on the parcel but realizes they need an additional three units for the project to be feasible. They want to draw the units from Parcel A (donor), who has a residential capacity of five units.
Request
approved
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RiversideCA.gov
17 DOCUMENTATION AND MONITORING
Transfers will be tracked in a database for the life of the program
Monitoring to ensure residential capacity does not
exceed maximum capacity of University Avenue
Specific Plan area
One year from adoption, Planning Division will
present a report on the program to City Council or
another standing committee
RiversideCA.gov
18 That the City Council:
1. DETERMINE that the University Avenue Density Transfer Pilot Program is exempt from further California Environmental Quality Act Review as it is consistent with the Final
Environmental Impact Report prepared for the original
University Avenue Specific Plan and with the 6th Cycle
Housing Element Final Programmatic Environmental Impact Report, as it does not change the overall amount of
development permitted in the Specific Plan; and
2. ADOPT a resolution implementing the proposed University Avenue Density Transfer Pilot Program
RECOMMENDATIONS
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RiversideCA.gov
19 Reference Only Slides
RiversideCA.gov
20 What is a Density Transfer Program
(DTP)?
• Establishes a policy framework for transferring
residential development rights from one
property to another
• Establishes an area of focus for density
transfers to be proposed or requested
PROGRAM BASICS
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21 Unused Density
Donor Sites:
Properties with unus ed or underutilized
residential density that donate or sell
unused density for development
elsewhere.
Donor sites forfeit residential
development rights in perpetuity.
PROGRAM BASICS
RiversideCA.gov
22 Unused Density
Receiver Sites:
Properties that might benefit from
an increase in residential density,
beyond what is currently permitted,
usually for development feasibility
These properties may be a
challenge to develop without
additional development rights.
PROGRAM BASICS
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23 PROPOSED AREA OF FOCUS
Goal:
• Development of
vacant surplus
sites
• Investment in
quality,
affordable
housing
• Revitalization of
UASP corridor
RiversideCA.gov
24 DTP MODEL TYPES
• Transfer between two properties with the same
land use designation
1-to-1 Direct
Transfer
• Transfer between two properties with different land
use designations
Varying
Classification
Transfer
• Utilizes a banking system that is fed with unused
development capacity which can then be
withdrawn for use by other sites
Credit Bank
Model
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25 GOAL: Develop a density transfer program to increase densities on undeveloped and under-developed lots
OPPORTUNITIES
• Increases the probability Vacant
City Owned Surplus Properties are
developed
• Provides a way to gain back unused
density within current limits
• Increases ability for market to
respond to changes in demand
• Incentivizes affordable housing
• Provides a way to move towards our
RHNA housing obligation
CHALLENGES
• Requires ongoing monitoring,
tracking and reporting
STRATEGY 4: DENSITY TRANSFER PROGRAM
Unused Density
Infographic Credit: NYC.gov
EVALUATION
CRITERIA
• Within General
Plan density limits
• Moderate
increase in
residential
capacity
• Community
opposition unlikely
REFERENCE - OVERVIEW
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