CITY COUNCIL/SUCCESSOR AGENCY TO THE YORBA LINDA REDEVELOPMENT AGENCY,
YORBA LINDA HOUSING AUTHORITY AND YORBA LINDA MUNICIPAL FINANCING AUTHORITY
JOINT ADJOURNED REGULAR MEETING AGENDA
Wednesday, February 9, 2022, 5:30 p.m.
Council Chambers
4845 Casa Loma Avenue
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CALL TO ORDER
The City Council/Successor Agency to the Yorba Linda Redevelopment Agency will convene at 5:30 p.m. in the Council Chambers at 4845 Casa Loma Avenue.
ROLL CALL
PLEDGE OF ALLEGIANCE
PUBLIC COMMENTS – ITEMS ON THE CONSENT CALENDAR OR ITEMS NOT
ON THE REMAINDER OF THE AGENDA
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PUBLIC HEARING
If you challenge the legislative body’s proposed actions in court, you may be limited to raising those issues that you or someone else raised at the Public Hearing described in this Agenda, or in any written correspondence delivered to the City Council/Successor Agency to the Yorba Linda Redevelopment Agency on or prior to the Public Hearing.
1. RESOLUTION NO. 2022- 5781 ADOPTING GENERAL PLAN AMENDMENT 2020-01 – AN UPDATE OF THE HOUSING ELEMENT OF THE GENERAL PLAN FOR 2021-2029
4 a. Open Public Hearing
b. Staff Report
c. Take Testimony
d. Close Public Hearing
e. Make Determination
CEQA STATUS: Exempt from CEQA pursuant to CEQA Guidelines Section 15061(b)(3)
Recommendation:
It is recommended that the City Council adopt Resolution No. 2022-5781 to adopt General Plan Amendment 2020-01 – an update of the Housing Element of the General Plan for 2021-2029.
ADJOURNMENT
The next regularly scheduled City Council/Successor Agency to the Yorba Linda Redevelopment Agency joint meeting is February 15, 2022.
NOTE: ALL STAFF REPORTS AND RELATED ATTACHMENTS FOR ITEMS ON THIS AGENDA ARE ON FILE IN THE CITY CLERK’S OFFICE. AS AN ADDITIONAL SERVICE, THE CITY NOW PROVIDES THE STAFF REPORTS AND RELATED ATTACHMENTS ON THE CITY’S WEBSITE. PLEASE NOTE THAT IT IS NOT ALWAYS
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COMMUNITY DEVELOPMENT DEPARTMENT
DATE: FEBRUARY 9, 2022
TO: HONORABLE MAYOR AND MEMBERS OF THE CITY COUNCIL
FROM: DAVID BRANTLEY, COMMUNITY DEVELOPMENT DIRECTOR
PREPARED BY: NATE FARNSWORTH, PLANNING MANAGER
SUBJECT: RESOLUTION NO. 2022- 5781 ADOPTING GENERAL PLAN AMENDMENT 2020-01 – AN UPDATE OF THE HOUSING ELEMENT OF THE GENERAL PLAN FOR 2021-2029
RECOMMENDATION
It is recommended that the City Council adopt Resolution No. 2022-5781 to adopt General Plan Amendment 2020-01 – an update of the Housing Element of the General Plan for 2021- 2029.
BACKGROUND
State housing law requires that the City’s Housing Element be updated every eight years. On October 20, 2020, the City Council and Planning Commission held a joint Housing Element Update kickoff public workshop. Although the City invited members of the public and key stakeholders to attend the meeting, there were no public comments at this meeting. City staff provided the City Council and Planning Commission with a general overview of the Housing Element Update process, and staff from the State Department of Housing and Community Development (HCD) provided an overview of new state housing requirements.
On February 24, 2021, the Planning Commission conducted a Housing Element Workshop where staff presented the results of the City’s community outreach survey, introduced its draft housing sites inventory, and discussed recommended land use and rezoning strategies to achieve its state-mandated RHNA obligation of 2,415 housing units. The Planning Commission also received comments from the public and requested that staff provide them with an opportunity to provide a detailed review of the draft housing sites inventory. Some of these land use strategies included the promotion of constructing ADUs and an affordable housing overlay opportunity zone for properties used for religious purposes.
Since this Planning Commission workshop, staff has met several times with HCD to discuss various land use strategies. Based on the feedback from HCD, staff has further refined the draft housing sites inventory and released a community survey focused on outreach to senior citizens. The senior survey demonstrated that the majority of the senior citizen sector of the population is interested in learning more about senior housing opportunities in the City. Staff has also analyzed a couple lower resource areas on the west side of the City identified by
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HCD as needing more in-depth review for purposes of complying with state housing law to “affirmatively further fair housing.” The purpose of this analysis is to “identify areas in every region of the state whose characteristics have been shown by research to support positive economic, educational, and health outcomes for low-income families—particularly long-term outcomes for children.”
On March 24, 2021, staff provided the Planning Commission with a brief update on the Housing Element status. The Planning Commission provided general feedback on the draft housing sites inventory and directed staff to further refine the inventory based on eligibility requirements from HCD and return with more details on the “candidate” housing sites.
On April 22, 2021, staff presented an update to the City’s Traffic Commission on the Housing Element. The Traffic Commission is primarily interested in learning which housing sites will be identified in order to determine the traffic impacts of those housing opportunities.
On April 28, 2021, staff presented an updated draft “candidate” housing sites inventory and solicited additional comments from the Planning Commission and the public on the proposed sites. The Planning Commission provided additional comments and directed staff to begin the process of reaching out to property owners to educate and solicit feedback on their level of interest in potentially being considered as a housing site. Staff also provided updates on the strategy to utilize ADUs and the religious housing overlay zone.
On June 2, 2021, staff conducted a property owner stakeholder meeting to explain the purpose of the Housing Element, RHNA, and the housing sites inventory to property owners of all previously identified “candidate” housing sites. Over 250 invitations were sent out and nearly 100 individuals participated in the meeting. Staff invited all the property owners to reach out individually to staff to share their level of interest in participating as a candidate housing site. To date, staff has held dozens of individual meetings with property owners to discuss their specific situation and gauge their level of interest as a potential “candidate” housing site.
Staff has also continued to research various constraints and eligibility with HCD’s strict standards for each of the properties.
On June 9, 2021, the Planning Commission received an update on the property owner stakeholder meeting and provided the public with another opportunity to comment on the Housing Element Update. The Planning Commission provided general feedback to staff to return with a refined draft “candidate” housing sites inventory with recommended rankings of each site.
On July 14, 2021, staff presented the Planning Commission with a refined draft “candidate” housing sites and presented the highest ranked properties based on site eligibility, known constraints, property owner interest, and other factors. Staff also provided the public with another opportunity to comment on the Housing Element Update and the draft housing sites inventory. The Planning Commission requested that staff provide additional time for the Planning Commission to provide comments and one more opportunity for public comment prior to making a recommendation to the City Council.
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On July 28, 2021, staff presented the final draft housing sites inventory to the Planning Commission. The Planning Commission provided staff with refinements to the sites inventory and supported ensuring that property owners are informed and supportive of the rezone efforts. Staff has been making efforts to reach all property owners by all means available and will continue that effort and refine the draft Housing Sites Inventory as necessary. The public was also given another opportunity to comment on the plan. Staff has further refined the draft housing sites inventory into the document based on comments from the public, the Planning Commission, and staff’s continued property owner outreach efforts.
On August 3, 2021, staff presented the final draft housing sites inventory to the City Council.
After receiving input from the public, the City Council provided comments and directed staff to release the draft Housing Element to HCD for their review.
On August 27, 2021, staff submitted the draft Housing Element to HCD for their formal 60-day review. On October 26, 2021, HCD provided comments on the City’s draft Housing Element, which mostly requested that the City provide additional information and details on various components of the Housing Element as required by numerous state housing laws.
On October 27, 2021, the Planning Commission conducted a public workshop to receive an update from staff on the comments received from HCD, to receive additional public input, and to provide recommendations on how to proceed with addressing the comments from HCD.
After multiple meetings with HCD to address questions and concerns raised in their letter, staff received direction from the City Council to release the revised draft Housing Element to HCD for review on December 8, 2021. Although HCD is still reviewing the draft Housing Element, the Planning Commission conducted its public hearing on January 12, 2022, and unanimously recommended that the City Council adopt the revised Housing Element in order to meet the deadline of February 11, 2022. The only change the Planning Commission is recommending is the removal of the property located at 18161 Bastanchury Rd from the housing sites inventory at the request of the property owner.
On February 1, 2022, the City Council continued the public hearing on the adoption of the Housing Element until February 9, 2022, in order to provide additional time for staff to work with HCD on any final revisions. Staff should be receiving a letter from HCD on February 4, 2022, outlining any remaining issues. Since staff has carefully responded to all comments to date from HCD, it is anticipated that any remaining comments will be nonsubstantive and primarily clarifications that would not necessitate returning to the Planning Commission for reconsideration of the document.
DISCUSSION
State law requires each city to prepare and adopt a housing element as part of its General Plan. According to state law, the Housing Element must: provide goals, policies, quantified objectives, and scheduled programs to preserve, improve, and develop housing. The
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Housing Element must identify and analyze existing and projected housing needs for all economic segments of the community.
Housing Needs Assessment
The state develops housing demand projections and apportions these projections to each of the state’s regions. In Orange County, the Southern California Association of Governments (SCAG) allocates the state’s regional projected demand to individual jurisdictions. This allocation is referred to as the 6th Cycle RHNA and is intended to reflect the projected housing demand of each jurisdiction. State law requires that jurisdictions incorporate this allocation into their Housing Element update. To assess projected housing needs, a complete description of the City’s most recent population estimate, and general characteristics of the employment market is provided. This information offers insight into the types of jobs in the community and the incomes associated with such jobs. It also identifies proposed development activities and future housing needs generated by new employment opportunities.
The “Housing Needs” section of the Housing Element identifies and analyzes the existing and projected housing need of the community pursuant to the RHNA. This is different from previous cycles where the RHNA only included the projected need. An assessment must be undertaken of the community’s existing and projected housing needs based on household characteristics, housing stock conditions, special housing needs, and demographic and employment trends. The City’s total final RHNA allocation is 2,415.
According to the methodology approved by SCAG, the projected need for the City, which is based on planned development and the City’s official growth forecast, is 34 units. The existing need for the City is 2,376 and is solely based on a jurisdiction’s access to jobs and transit. The existing need also included additional units that were reallocated from disadvantaged communities (DACs) in Orange County. An additional 6 units were allocated to the City as a result of any successful RHNA appeal. The assessment of existing housing needs includes current demographic information, such as the total population, the number of households over-burdened by housing costs (households paying more than 30% of income for housing), the number of households living in overcrowded conditions, and special housing needs. It also includes the number of housing units that need rehabilitation, as well as assisted affordable units at risk of converting to market rate. The majority of the data included in this section has been precertified by HCD for the SCAG region.
Projected need is the household growth for jurisdictions between July 1, 2021, and October 1, 2029. Existing need is considered the remainder of the regional determination after projected need is subtracted. The allocation establishes the number of new units anticipated to be needed, by income category, to accommodate the expected population growth over the planning period of the Housing Element. The housing needs findings are used to inform and develop the Housing Element policies and programs to ensure that the City focuses its efforts on the community’s identified needs.
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Sites Inventory, Analysis, and Goals and Policies
State law requires jurisdictions to provide an inventory of land suitable for residential development that will allow for, and facilitate production of, the City’s regional share of housing as determined by the RHNA.
To determine whether the City has sufficient land to accommodate its share of regional housing needs for all income groups, the City must identify “adequate sites” in the Housing Element site inventory. The purpose of the housing element’s site inventory is to identify and analyze specific land (sites) that is available and suitable for residential development in order to determine the jurisdiction’s capacity to accommodate residential development and reconcile that capacity with the jurisdiction’s RHNA. The site inventory enables the jurisdiction to determine whether there are sufficient adequate sites to accommodate the RHNA by income category. A site inventory and analysis will determine whether program actions must be adopted to “make sites available” with appropriate zoning, development standards, and infrastructure capacity to accommodate the new housing need.
Other characteristics to consider when evaluating the appropriateness of sites include physical features (e.g., size and shape of the site, improvements currently on the site, slope instability or erosion, or environmental and pollution considerations), location (e.g., proximity and access to infrastructure, transit, job centers, and public or community services), competitiveness for affordable housing funding (e.g., Low Income Housing Tax Credit score criteria), and likelihood or interest in development due to access to opportunities such as jobs and high performing schools. When determining sites to include in the inventory to meet the lower income housing need, HCD recommends that a local government first identify development potential in high opportunity neighborhoods. High opportunity areas are places that currently have strong economic, environmental, and educational outcomes. Locating affordable housing in high opportunity areas would result in more racial integration of neighborhoods and offer new economic opportunities to lower income segments of the population. This will assist the local government in meeting its requirements to affirmatively further fair housing and ensure developments are more competitive for development financing.
Sites are considered suitable for residential development if zoned appropriately and available for residential use during the planning period. Housing Element law does not require a jurisdiction to build housing units, but rather to demonstrate that the jurisdiction has the land capacity to address its RHNA. If a jurisdiction cannot demonstrate that the existing zoning and General Plan designations can accommodate its RHNA allocation, the jurisdiction is required to re-zone land in order to have sufficient capacity, among other programs that may also be required. Even if a city re-zones the land to accommodate residential, market and development trends will ultimately dictate the approval and construction of residential units. The City’s draft 2021-2029 Housing Element demonstrates that Yorba Linda does not have sufficient capacity under the current General Plan to meet the new RHNA through vacant land capacity and will need to re-zone land and update the General Plan and Zoning Ordinance to accommodate the RHNA. With the proposed rePage 8 of 554 RESOLUTION NO. 2022- 5781 ADOPTING GENERAL PLAN AMENDMENT 2020-01 – AN UPDATE OF THE HOUSING ELEMENT OF THE GENERAL PLAN FOR 2021-2029 P a g e | 6
zoning and inclusion of new policies and programs, the City is able to identify sufficient capacity to accommodate the 6th Cycle RHNA.
The City’s 6th Cycle RHNA has been significantly increased from the 5th Cycle RHNA of 669 units to 2,415 total units. The 6th Cycle RHNA will replace the current allocation when the Housing Element is updated, adopted by the City Council, and certified by the state before the statutory deadline.
Housing Element statute has been modified the past several years, adding new requirements that must be included in a jurisdiction’s Housing Element update. This includes the addition of the Affirmatively Further Fair Housing (AFFH) section and the “no net loss” requirement in the site inventory. “No net loss” requires a jurisdiction to continuously maintain adequate sites throughout the planning period to accommodate its remaining unmet RHNA by each income category. Specifically, if a jurisdiction approves a development of a parcel identified in its Housing Element sites inventory with fewer units than shown in the Housing Element, it must either make findings that the Housing Element’s remaining sites have sufficient capacity to accommodate the remaining unmet RHNA by each income level, or identify and make available sufficient sites to accommodate the remaining unmet RHNA for each income category. As a result of this requirement, the City must identify more sites and units than identified in the RHNA. The following table shows how the City proposes to meet its RHNA obligation.
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Constraints
A number of factors can constrain the development and improvement of housing. These include both governmental and non-governmental constraints, which are reviewed in the Housing Constraints section of the draft 2021-2029 Housing Element. State law requires the City to analyze land use controls, fees and exactions, on- and off-site improvement requirements, building codes, and enforcement thereof, permit and processing procedures, and potential constraints on the development or improvement of housing for persons with disabilities. The draft 2021-2029 Housing Element generally finds that the City land use controls do not create unnecessary constraints to housing development.
Non-governmental constraints must also be analyzed, including the availability and cost of land, as well as construction costs. These constraints are often out of the City’s control but can result in housing that is not affordable to low- and moderate-income households.
Goals, Policies, and Programs
Based on the results of the public participation, housing needs assessment, sites inventory and analysis, and constraints, the draft 2021-2029 Housing Element establishes goals, policies, and programs to facilitate the provision of housing that fulfills the diverse needs of the community.
The draft 2021-2029 Housing Element establishes five goals, which are statements of community desires that are broad in both purpose and aim but are designed specifically to establish direction. Policies provide specific standards for achieving each goal, and are further articulated in the programs, which identify actions the City will implement to achieve each goal and policy.
Many of the goals, policies, and programs have not changed from the 2013-2021 Housing Element. Some have been modified to simplify, avoid redundancy, or reflect current practice, and are outlined in the Goals, Policies and Programs section. New goals, policies, and programs have been added to build upon Yorba Linda’s success in building affordable housing throughout the community and address the City’s significant RHNA allocation.
Some of the new and expanded proposed policies being considered include:
Support the implementation of State laws to protect existing tenants from displacement through requirements for just cause evictions, limitations on rent increases, and replacement housing requirements if any existing residential units would be removed.
Support collaborative partnerships with non-profit organizations, religious institutions, the business community and governmental agencies in the provision of affordable, workforce and special needs housing.
Pursue opportunities to integrate housing in underutilized commercial centers, and to reuse excess or obsolete commercial buildings for housing.
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Designate sites in geographically dispersed locations with an Affordable Housing Overlay to provide meaningful incentives for development. Structure the Overlay to provide incentives for the consolidation of smaller parcels to facilitate high-quality development.
Support the provision of affordable housing on congregational land through flexible development standards, including opportunities for reduced and shared parking arrangements.
Facilitate the creation of accessory dwelling units (ADUs) and junior ADUs in all residential districts as a means of dispersing small, affordable units throughout the community.
Provide flexibility in development standards to accommodate new models and approaches to providing housing, such as transit-oriented development, live/work housing, micro units and flex space to allow housing to adapt to the needs of the occupants.
Establish objective development standards to create greater certainty for developers and streamline the development review and permitting process. Continue to support implementation of the Orange County Continuum of Care program for the homeless and persons and families at-risk of homelessness, including the two Navigation Centers recently developed in the nearby area. Support local churches in providing emergency overnight shelter to homeless individuals and families.
The City is also planning on implementing three new housing programs as part of this Housing Element update:
Affordable Housing Overlay – This overlay zone would allow for certain properties identified in the Housing Element to construct housing at a density of up to 35 dwelling units per acre provided that the development include a certain level of affordability. Commercial Mixed-Use Overlay – This overlay zone would allow for certain commercial properties to develop with residential uses provided that the development retains a portion of the existing commercial square footage. Congregational Land Overlay – This overlay zone would allow for certain religious properties to construct housing on their properties provided that the developments include a certain level of affordability.
Site Inventory
State law mandates that cities develop a sites inventory analysis to identify vacant land or land that can be redeveloped during the planning period. The inventory must include a map identifying parcels, general plan and zoning designation, acreage and unit capacity across affordability levels. The sites inventory analysis included in the draft 2021-2029 Housing Element demonstrates that the RHNA of 2,415 total housing units can be accommodated through a combination of the remaining vacant residential sites in Yorba Linda and nonvacant sites that can be redeveloped with a residential component. This will require the City
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to complete a subsequent update to the General Plan and Zoning Ordinance following the adoption of the Housing Element.
Per Housing Element statute and HCD’s “Housing Element Site Inventory Guidebook”, the City must identify adequate sites at the parcel level. Additionally, according to the guidebook, “the analysis of ‘appropriate zoning’ should not include residential buildout projections resulting from the implementation of a jurisdiction’s inclusionary program or potential increase in density bonus, because these tools are not a substitute for addressing whether the underlying (base) zoning densities are appropriate to accommodate the RHNA for lower income households.” This means despite state law allowing every residential property to be permitted to have two ADUs on each property, the City is unable to utilize the ADU housing program to meet the affordable RHNA allocation. Additional constraints to developing the site inventory include, but are not limited to:
Density Realism: The City must show precedent for high density residential assumptions by providing documentation that nearby developments are at similar densities.
Parcel Size: HCD will scrutinize affordable units on sites that are less than 0.5 acres or more than 10 acres.
Affirmatively Furthering Fair Housing (AFFH): The City is required to spread affordable units throughout the City to ensure there is not a concentration of affordable units in one area.
A detailed breakdown of the residential development capacity by income category is provided in the Projected Housing Needs section of the draft 2021-2029 Housing Element.
The City will accomplish this task while continuing Yorba Linda’s tradition of strategic and thoughtful planning. Additionally, the draft 2021-2029 Housing Element continues the community’s commitment to a full spectrum of housing opportunities for all income groups at all stages of life.
Quantified Objectives
A component of the Housing Element includes quantified objectives for achieving the maximum number of units, by income level, to be constructed, rehabilitated, and conserved over the planning period. Staff has identified the City’s housing needs, surveyed developable parcels, identified financial resources, analyzed constraints, and assessed appropriate programs and policies. As a result of this analysis an estimate was made of the maximum number of units that can reasonably be expected to be developed by the private sector.
Review of Past Programs in the Previous Housing Element The City must evaluate the results from housing programs implemented during the previous Housing Element. The review of past programs discusses the progress, effectiveness, and appropriateness of the previous Housing Element goals, objectives, policies, and programs.
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Public Participation
Pursuant to California Government Code Section 65583(c)(9), local governments are required to “make a diligent effort to achieve public participation of all economic segments of the community in the development of the housing element.” The City’s public participation efforts are outlined in detail in the background section of this staff report as well as within the Housing Element document. Public notices for all community workshops were provided in the Yorba Linda Star with a 1/8-page display ad to ensure greater visibility by the public.
Additionally, staff created a City website (https://www.ylhousingelementupdate.com/) specifically for the Housing Element update that included an overview of the Housing Element process, FAQs, review of the City’s housing accomplishments, allowed for citizen input on potential housing sites and to provide any other comments, and to announce future events. The City also released several online and written surveys for Yorba Linda residents to provide input on what they see as the community’s most important housing needs and to provide feedback on their preference for various policy options. Finally, the City provided regular updates on the progress of the Housing Element in the City’s eNewsletter.
CEQA
The proposed General Plan Amendment would not approve any development project or any other physical change to the environment; therefore, it is covered by the “common sense” exemption (CEQA Guidelines Section 15061(b)(3)) which provides that CEQA applies only to projects that have the potential for causing a significant effect on the environment.
Subsequent to the adoption of the Housing Element, amendments to the Zoning Ordinance and Zoning Map will be necessary in order to implement Housing Element programs, and appropriate CEQA analysis and compliance with Measure B (“The Yorba Linda Right-toVote Initiative”) will be prepared in connection with those amendments.
FISCAL IMPACT
The cost for the Housing Element update has been covered through the SB 2 Planning Grant and Local Early Action Planning (LEAP) Grant made available through the State Department of Housing and Community Development (HCD). The total grant funding was for $610,000.
ALTERNATIVES
The City Council could direct staff to make changes to the Housing Element; however, any significant changes to the Housing Element would require resubmitting the Housing Element to HCD for a 90-day review preceded by a mandatory 30-day public comment period. The revised Housing Element would also be required to be reconsidered by the Planning Commission at a public hearing. This would result in the City missing the deadline for the Housing Element due date.
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ATTACHMENTS
1) Resolution No. 2022-5781 (including Exhibit A – Housing Element Update)
RESOLUTION NO. 2022-5781
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF
YORBA LINDA RECOMMENDING TO THE CITY COUNCIL
OF THE CITY OF YORBA LINDA APPROVAL OF AN
UPDATE TO THE HOUSING ELEMENT FOR 2021-2029
WHEREAS, the original General Plan of the City of Yorba Linda was adopted in 1971, under City Council Resolution No. 328; and,
WHEREAS, the City of Yorba Linda General Plan was updated and approved under City Council Resolution No. 93-2815 on June 1, 1993; and, WHEREAS, the City of Yorba Linda General Plan was updated and approved under City Council Resolution No. 2015-5412 on October 28, 2016; and WHEREAS, Government Code Section 65580 et seq. (Housing Element Law) requires that every city prepare and periodically update the housing element of the general plan; every city is mandated to include statutory requirements in the housing element, and every city is required to submit a draft of its housing element to the California Department of Housing and Community Development (HCD) for review and comment as to whether the city’s draft 2021-2029 Housing Element substantially complies with Housing Element Law; and
WHEREAS, the City’s Housing Element will cover the 2021-2029 planning period and plan for the provision of housing accessible to all income categories; and WHEREAS, the City’s draft 2021-2029 Housing Element was structured to adhere to the Housing Element Building Blocks created by HCD to assist jurisdictions in preparing the document; and
WHEREAS, the Housing Element is a policy document intended to facilitate decision making relative to the physical development of the City and to reflect the existing conditions, requirements, and constraints of the City, specifically as it relates to housing; and,
WHEREAS, public workshops were held on the following dates in order to receive to receive input from community stakeholders and residents relative to the Housing Element update:
October 20, 2020
February 24, 2021
March 24, 2021
April 22, 2021
April 28, 2021
June 2, 2021
June 9, 2021
July 14, 2021
July 28, 2021
August 3, 2021
October 27, 2021
WHEREAS, on August 27, 2021, the City submitted its draft Housing Element to HCD for its 60-day review and received comments back from HCD on October 26, 2021;
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and
WHEREAS, on December 8, 2021, the City resubmitted its Housing Element to HCD after addressing all of the comments provided by HCD in its October 26, 2021 letter, and received comments back from HCD on February 4, 2022; and WHEREAS, the City has revised the Housing Element addressing all of the comments provided by HCD in its February 4, 2022 letter; and WHEREAS, based on a variety of factors including development trends, property owner interest, structure age, property valuation, and development capacity, the existing uses on the sites identified in the site inventory to accommodate the lower-income RHNA are likely to be discontinued during the planning period, and therefore do not constitute an impediment to additional residential development during the period covered by the Housing Element; and
WHEREAS, the General Plan would not approve any development project or any other physical change to the environment; therefore, it is covered by the “common sense” exemption (CEQA Guidelines Section 15061(b)(3)) which provides that CEQA applies only to projects that have the potential for causing a significant effect on the environment. Subsequent to the adoption of the Housing Element, amendments to the Zoning Ordinance and Zoning Map will be necessary in order to implement Housing Element programs, and appropriate CEQA analysis and compliance with Measure B (“The Yorba Linda Right-to-Vote Initiative”) will be prepared in connection with those amendments; and,
WHEREAS, this General Plan Update requires a public hearing before the Planning Commission, and public notice has been provided in accordance with State law; and,
WHEREAS, on January 12, 2022, the Planning Commission held a public hearing concerning the General Plan Amendment and unanimously recommended that the City Council adopt the Housing Element update; and,
WHEREAS, on February 1, 2022, the City Council held a public hearing concerning the General Plan Amendment and continued the public hearing to February 9, 2022; and, WHEREAS, on February 9, 2022, the City Council held a public hearing concerning the General Plan Amendment and continued the public hearing to February 9, 2022; and, WHEREAS, after consideration of the staff report and all information, testimony, and evidence presented at the public hearing, the City Council finds and determines as follows:
SECTION 1. The General Plan would not approve any development project or any other physical change to the environment; therefore, it is covered by the “common
RESOLUTION NO. 2022-5781
PAGE 3
sense” exemption (CEQA Guidelines Section 15061(b)(3)) which provides that CEQA applies only to projects that have the potential for causing a significant effect on the environment. Subsequent to the adoption of the Housing Element, amendments to the Zoning Ordinance and Zoning Map will be necessary in order to implement Housing Element programs, and appropriate CEQA analysis and compliance with Measure B (“The Yorba Linda Right-to-Vote Initiative”) will be prepared in connection with those amendments.
SECTION 2. The findings in support of the update of the General Plan are as follows:
A) The proposed General Plan Amendment is consistent with other elements of the City’s General Plan pursuant to Government Code Section 65300.5. The 2021-2029 Housing Element is a general plan amendment required by Housing Element Law. Furthermore, the proposed General Plan Amendment is consistent with the other elements of the City of Irvine General Plan.
B) The proposed General Plan Amendment responds to changes in state and/or federal law pursuant to Government Code Section 65300.9. The 2021-2029 Housing Element has been initiated in response to state law and the requirements of Housing Element Law.
C) The proposed general plan amendment has been referred to the County of Orange and any adjacent cities abutting or affected by the proposed action and any other federal agency whose operations or lands may be affected by the proposed decision pursuant to Government Code Section 65352.
Notification of a public hearing for the proposed General Plan Amendment was sent to the County of Orange and several adjacent cities that may be affected by the proposed action.
D) The proposed General Plan Amendment will not be detrimental to the public health, safety, and welfare of the community. The 2021-2029 Housing Element will not result in any surrounding uses or activities that would impact the public health, safety, or welfare of the community. The General Plan Amendment implementing the Housing Element will ensure the provision of housing accessible to all income categories and will ensure consistency with applicable provisions of the Zoning Code.
SECTION 3. The City Council approves the 2021-2029 Housing Element in its amended form as contained in Exhibit A that has addressed and incorporated the findings from HCD, as presented to the City Council on the date of this Resolution and on file with the City Clerk.
SECTION 4. The City Council hereby finds that Yorba Linda Municipal Code Chapter 18.01 (the Yorba Linda Right-to-Vote Amendment also known as Measure B) is inapplicable to this General Plan Update; however, subsequent to the adoption of the Housing Element, amendments to the Zoning Ordinance and Zoning Map will be necessary in order to implement Housing Element programs, and compliance with
RESOLUTION NO. 2022-5781
PAGE 4
Measure B (“The Yorba Linda Right-to-Vote Initiative”) will be prepared in connection with those amendments.
PASSED AND ADOPTED at a regular meeting of the City Council of the City of Yorba Linda on the 9th day of February, 2022.
___________________________
CARLOS RODRIGUEZ, MAYOR
CITY OF YORBA LINDA
ATTEST:
________________________________
MARCIA BROWN, CITY CLERK
CITY OF YORBA LINDA
APPROVED AS TO FORM:
RUTAN & TUCKER, LLP
________________________________
CITY ATTORNEY
STATE OF CALIFORNIA )
COUNTY OF ORANGE ) SS
CITY OF YORBA LINDA )
I, MARCIA BROWN, City Clerk of the City of Yorba Linda, HEREBY DO CERTIFY that the foregoing Resolution was duly adopted at a regular meeting of the City Council of the City of Yorba Linda, held on the 9th day of February, 2022.
AYES: COUNCIL MEMBERS: Campbell, Haney, Hernandez, Huang, Rodriguez NOES: COUNCIL MEMBERS: None
ABSENT: COUNCIL MEMBERS: None
________________________________
MARCIA BROWN, CITY CLERK
CITY OF YORBA LINDA
Final Draft January 2022
FINAL DRAFT
January 2022
City of Yorba Linda
Community Development Department
4845 Casa Loma Avenue
Yorba Linda, CA 92885
TABLE OF CONTENTS
SECTION PAGE
I. Introduction
A. Role and Organization of Housing Element..................................................I-1 B. Changes in State Housing Law ....................................................................I-2 C. Public Participation.......................................................................................I-4 D. Relationship to Other General Plan Elements ............................................I-10 II. Housing Needs Assessment
A. Demographic Profile....................................................................................II-1 B. Household Profile........................................................................................II-6 C. Housing Stock Characteristics...................................................................II-17 D. Regional Housing Needs Allocation ..........................................................II-32 III. Housing Constraints
A. Governmental Constraints..........................................................................III-1 B. Market Constraints...................................................................................III-27 C. Environmental and Infrastructure Constraints...........................................III-30 IV. Housing Resources
A. Availability of Sites for Housing ................................................................. IV-1 B. Financial Resources ............................................................................... IV-19 C. Administrative Resources........................................................................ IV-24 D. Opportunities for Energy Conservation.................................................... IV-25 V. Housing Plan
A. Evaluation of Accomplishments Under Adopted Housing Element ............. V-1 B. Goals and Policies ..................................................................................... V-9 C. Housing Programs ................................................................................... V-14 Appendices
A. Glossary
B. Affirmatively Furthering Fair Housing
C. Residential Sites Inventory
D. Community Participation
LIST OF TABLES
SECTION PAGE
Introduction
I-1 New State Housing Laws Relevant to Housing Element Update..............................I-2 Housing Needs Assessment
II-1 Regional Population Growth Trends 1980-2020 .....................................................II-1 II-2 Age Distribution 1990-2020 ....................................................................................II-2 II-3 Racial and Ethnic Composition 1990-2020 .............................................................II-3 II-4 Major Employers in Yorba Linda .............................................................................II-4 II-5 Employment Sectors...............................................................................................II-4 II-6 Household Characteristics 1990-2020 ....................................................................II-6 II-7 State Income Categories ........................................................................................II-7 II-8 Household Income Distribution 2016 ......................................................................II-7 II-9 Orange County Wages for Select Occupations 2020..............................................II-8 II-10 Special Needs Populations 2020 ...........................................................................II-9 II-11 Developmentally Disabled Residents Served by RCOC .......................................II-13 II-12 Inventory of Homeless Services and Facilities, North Orange County ..................II-16 II-13 Regional Housing Growth Trends 1980-2020 .......................................................II-17 II-14 Housing Type 1990-2020 .....................................................................................II-18 II-15 Housing Tenure 1990-2020 ..................................................................................II-18 II-16 Age of Housing Stock 2020 ..................................................................................II-19 II-17 Survey of Vacant Rental Units, May – June 2020 .................................................II-20 II-18 Affordability Assumptions for All ADUs in Orange County.....................................II-22 II-19 Regional Median Home Values 2019....................................................................II-23 II-20 Median Home Values in Yorba Linda 2019...........................................................II-23 II-21 2020 Orange County Maximum Affordable Housing Cost .....................................II-25 II-22 2020 Maximum Affordable Rents, Orange County................................................II-26 II-23 Assisted Rental Housing Inventory .......................................................................II-27 II-24 Housing Overpayment 2018 .................................................................................II-29 II-25 Lower Income Renter Overpayment 2018 ............................................................II-30 II-26 Lower Income Owner Overpayment 2018.............................................................II-30 II-27 Overcrowded Households 2018............................................................................II-31 II-28 Regional Housing Needs Assessment 2021-2029 ................................................II-32 Housing Constraints
III-1 Residential General Plan and Zoning Designations ...............................................III-2 III-2 Residential Development Standards......................................................................III-4 III-3 SH Combining Zone Development Standards........................................................III-5 III-4 Mobile Home Park Zone Development Standards .................................................III-7 III-5 Housing Types by Residential Zone Category .....................................................III-11 III-6 Residential Development Fees ............................................................................III-22 III-7 Development Fees: Prototypical Apartment Project (36 units) .............................III-23 III-8 Development Processing Times ..........................................................................III-25 III-9 Status of Home Purchase and Home Improvement Loans 2016..........................III-27 III-10 Permitted vs Built Densities .................................................................................III-29
Housing Resources
IV-1 Potential Housing Units During 2021-2029 Planning Period ................................ IV-2 IV-2 Housing Element Rezone Sites ........................................................................... IV-7 IV-3 Examples of Housing on Congregational Land .................................................. IV-11 IV-4 Development Potential on Religious Congregation Sites ................................... IV-12 IV-5 Development Projects and Trends ..................................................................... IV-15 IV-6 Financial Resources Available for Housing Activities ......................................... IV-20 Housing Plan
V-1 2014-2021 Housing Element Program Accomplishments ...................................... V-2 V-2 Summary of Quantified Objectives: 2014-2021 Housing Element .......................... V-8 V-3 Milestone for Housing Element Adoption, Rezoning and Measure B Election ...... V-18 V-4 Summary of Fair Housing Issues and Actions for Mitigation ................................ V-26 V-5 Housing Program Summary 2021-2029............................................................... V-31 V-6 2021-2029 Quantified Objectives ........................................................................ V-35
2021-2029 HOUSING ELEMENT I-1 INTRODUCTION
I. INTRODUCTION
A. ROLE AND ORGANIZATION OF THE HOUSING ELEMENT
State law recognizes the vital role local governments play in the availability, adequacy and affordability of housing. Every jurisdiction in California is required to adopt a long-range General Plan to guide its physical development; the Housing Element is one of the seven mandated elements of the General Plan. Housing Element law mandates that local governments adequately plan to meet the existing and projected housing needs of all economic segments of the community. The law recognizes that in order for the private market to adequately address housing needs and demand, local governments must adopt land use plans and regulatory systems that provide opportunities for, and do not unduly constrain housing production. Housing element statutes also require the State Department of Housing and Community Development (HCD) to review local housing elements for compliance with State law and to report their findings to the local government.
California’s Housing Element law requires that each city and county develop local housing programs to meet its “fair share” of existing and future housing needs for all income groups.
The Southern California Association of Governments (SCAG) is responsible for developing and assigning these regional needs, or “RHNA”, to southern California jurisdictions.
Pursuant to the RHNA planning period, the Yorba Linda Housing Element is an eight-year plan extending from 2021-2029.
Yorba Linda’s Housing Element identifies strategies and programs that focus on:
1) Preserving and improving housing and neighborhoods;
2) Providing adequate housing sites;
3) Assisting in the provision of affordable housing;
4) Removing governmental and other constraints to housing investment; and 5) Promoting fair and equal housing opportunities.
The City’s 2021-2029 Housing Element consists of the following major components:
➢ An analysis of the City’s demographic, household and housing characteristics and related housing needs (Section II);
➢ A review of potential market, governmental, and infrastructure constraints to meeting Yorba Linda’s identified housing needs (Section III);
➢ An evaluation of residential sites, financial and administrative resources for housing, and resources for energy conservation (Section IV);
➢ The Housing Plan for addressing the City's identified housing needs, constraints and resources; including housing goals, policies and program (Section V); ➢ Appendices documenting the residential sites inventory and public participation process.
2021-2029 HOUSING ELEMENT I-2 INTRODUCTION
B. CHANGES IN STATE HOUSING LAW
In response to California’s worsening affordable housing crisis, in each of the last several years the State legislature has enacted a series of bills aimed at increasing production, promoting affordability and creating greater accountability for localities in addressing their housing needs. The following items in Table I-1 represent substantive changes to State housing law since Yorba Linda’s last Housing Element was adopted and certified in 2014.
Table I-1
New State Housing Laws Relevant to Housing Element Update Housing Bills Bill Overview
Housing Element Sites Analysis and
Reporting: AB 879 (2017); AB 1397
(2017; SB 6 (2019)
Requires cities to zone more appropriately for their
share regional housing needs and in certain
circumstances require by-right development on
identified sites. Site analysis must also include
additional justification for being chosen, particularly for sites identified to address lower income needs.
Starting in 2021, an electronic spreadsheet of the sites must be submitted in HCD.
No Net Loss Zoning: SB 166 (2017) Requires cities to identify additional low-income housing sites in their housing element when marketrate housing is developed on a site currently identified for low-income housing.
Affirmatively Furthering Fair
Housing: AB 686 (2017)
All Housing Elements due on or after January 1, 2021
must contain an Assessment of Fair Housing (AFH),
consistent with the federal Affirmatively Furthering Fair Housing (AFFH) Final Rule of July 16, 2015. This
AFFH sections must include a summary of fair housing
issues in the jurisdiction; a summary of available fair housing data including contributing factors to fair
housing issues; analysis of Housing Element sites in
relation to AFFH and an AFFH program that includes
meaningful action
Accessory Dwelling Units and Junior
Accessory Dwelling Units: AB 494
(2017), SB 229 (2017), AB 68 (2019),
AB 881 (2019), AB 587 (2019), SB
13 (2019), AB 670 (2019), AB 671
(2019), AB 3182 (2020)
The State enacted legislation in both 2017 and 2019 to
further assist and support the development of ADUs,
including “by right” approval for one-bedroom units less than 850 square feet and two-bedroom units less than
1,000 square feet. And Junior ADUs less than 500
square feet.
Density Bonus: AB 1763 (2019), AB
2345 (2020)
Permits 100% affordable projects to be built denser
and taller thru three modifications to current Density
Bonus Law. AB 2345 creates additional incentives and
also requires the annual progress report to include if
density bonuses have been granted.
Housing Crisis Act of 2019: SB 330 Seeks to boost homebuilding by expediting approvals for housing development, including application
processing times. SB 339 also prevents jurisdictions
from decreasing a site’s housing capacity through tools such as downzoning if that would preclude a
jurisdiction from meeting its RHNA targets. Also, any
2021-2029 HOUSING ELEMENT I-3 INTRODUCTION
Table I-1
New State Housing Laws Relevant to Housing Element Update Housing Bills Bill Overview
project that includes demolition of housing units must
replace or exceed that number of units. Any
demolished units occupied by low-income households
must be replaced with new units that are affordable to
that same income level.
Surplus Land for Affordable Housing:
SB 1486 (2019), AB 1255 (2019)
Expands definition of surplus land and puts additional
restrictions on the disposal of surplus land.
Jurisdictions must include information about surplus
lands in the Housing Element and Annual Progress
Reports. A central inventory of surplus lands also must be submitted to HCD.
Emergency and Transitional Housing
Act: AB 139 (2019)
Amends assessment method to show site capacity,
including using the most up-to-date point-in-time count.
Additionally, the bill modifies parking requirement for emergency shelters. The Housing Element must
include all of this information as well as analysis of the jurisdiction’s special needs populations.
Supportive Housing Streamlined
Approval: AB 2162 (2018)
Requires supportive housing to be a use by right and
eliminates parking if close to transit.
Safety Element Changes: SB 1035
(2018), SB 99 (2019), SB 747 (2019)
Updates requirements for the General Plan Safety
Element including expanded information on
environmental hazards facing jurisdictions and analysis of emergency evacuation routes. These updates must
occur at the same time as the Housing Element
updates.
2021-2029 HOUSING ELEMENT I-4 INTRODUCTION
C. PUBLIC PARTICIPATION
The City of Yorba Linda solicited input from the
public throughout the Housing Element update
process. As required by State law, all economic
segments of the community were provided an
opportunity to review and comment on the
Housing Element. As part of the development of
the Housing Element, which also requires
revisions to the Safety Element, the City
implemented the following public outreach
program and received the following feedback,
with more detailed summaries provided in
Appendix D of the Element. References have
been added to indicate how public comments have been addressed within the Housing Element.
Housing Element Website: A City website specifically for the Housing Element update was established to provide: 1) an
overview of the Housing Element
process; 2) FAQs; 3) review of the
City’s housing accomplishments;
4) allow for citizen input on
potential housing sites and to
provide other comments to the
City; and 5) to announce future
events (i.e., workshops, survey).
In addition, presentations from public outreach meetings were available for viewing, and documents related to the Housing Element were linked to the website, including the results of the Housing Element and Senior Needs surveys. This is the webpage link:
Yorba Linda | Https://www.ylhousingelementupdate.com | United States Public Workshops before City Council and Planning Commission: The City held a series of public workshops before the City Council and Planning Commission throughout development of the Housing Element.
• On October 20, 2020, the City Council and Planning Commission held a joint workshop to kick off the Housing Element update. Staff from the State Department of Housing and Community Development (HCD) provided an overview of new requirements and responded to questions. • On February 24, March 24, April 28, June 9, July 14 and July 28, 2021, the Planning Commission conducted workshops focusing on development of the Housing Element sites inventory.
Candidate housing sites were ranked high, medium and low based upon site eligibility, known constraints, property owner interest, and other factors. The public was notified and provided the opportunity to comment at all the workshops.
• Finally, on August 3, 2021, staff presented the draft Housing Element sites inventory to City Council, providing an opportunity for comment prior to integrating in the draft Housing Element and submitting to HCD for review.
Many public comments provided at the public workshops pertained to understanding the City’s requirement to upzone properties, how the change in zoning would impact the existing use of the property, and what this would mean for property owners. Staff explained the Public Outreach & COVID-19
Outreach for the sixth Cycle Housing
Element was challenging because much
of the update process occurred during the
COVID-19 pandemic. Restrictions on
public gatherings prevented the city from
holding traditional public workshops.
Instead, the city utilized online
engagement tools, including a community
survey, virtual community workshops and
stakeholder meetings, and online
documents to provide opportunities for the
community to share their feedback.
2021-2029 HOUSING ELEMENT I-5 INTRODUCTION
proposal to establish Mixed Use and Affordable Housing Overlays instead of blanket upzoning, allowing property owners the ability to develop under the base zone district or take advantage of incentives to develop under the Overlay zone. Residents also expressed support for the facilitation of ADUs, reflected in the Housing Element program to promote ADUs through fee waivers, pre-approved construction plans, and promotion through handouts and an ADU website page. Questions were also asked about how the Measure B vote work for the rezone sites; a timeline with key milestone for the Measure B election is included under the Housing Opportunity Site and Rezone Program.
Workshop with Religious Congregations: On January 26, 2021, the City hosted a meeting with its local religious congregations to discuss the City’s Housing Element update. Staff partnered with an organization called Making Housing Happen, which focuses its efforts on working with local churches to consider housing opportunities on underutilized portions of their property. One of the ideas discussed was the creation of a congregational housing overlay zone, which could potentially allow for housing to be built on religious sites. Staff invited the 37 religious’ congregations from Yorba Linda and had nearly 20 participants in attendance representing 12 different congregations. The concept was well-received and several congregations that were unable to attend the meeting requested additional information. The meeting was recorded and has been made available upon request to the other congregations.
Property Owner Workshop: On June 2, 2021, staff conducted a hybrid in-person/virtual stakeholder meeting with property owners of all previously identified candidate housing sites at the Yorba Linda Community Center. The focus of the meeting was to explain the purpose of the Housing Element, RHNA, and the housing sites inventory. Over 250 invitations were sent out and nearly 100 individuals participated in the meeting. Staff invited all the property owners to reach out individually to staff to share their level of interest in participating as a candidate housing site, resulting in dozens of follow up meetings with property owners to discuss their specific sites.
Housing Element Surveys: In October 2020, the City released an online survey for Yorba Linda residents to provide input on what they see as the community’s most important housing needs and to provide feedback on their preference for various policy options. The survey consisted of nine questions, with a link to a GIS web map to allow respondents to identify specific locations the City should consider as potential housing sites. The survey was posted on the City website for approximately four months, with a link advertised in the City’s eNews, on the City’s website, and on the City’s social media accounts (i.e., Facebook, Instagram, Twitter). The City received 105 responses to the survey, which closed on January 28, 2021.
The following summarizes some of the primary input received from the housing needs survey, with the complete survey results included in Appendix D. • The following were identified as the top three housing priorities (out of 6):
- Encouraging the maintenance and rehabilitation of housing in older neighborhoods (Addressed in the following HE Programs: Residential Rehabilitation, Community Preservation and Abatement, Multi-family Acquisition and Improvement) - Establishing special needs housing for seniors, persons with disabilities and veterans (Addressed in the following HE Programs: Affordable Housing Overlay, Zoning Text Amendments for Special Needs, Housing Opportunities for Persons Living with Disabilities)
2021-2029 HOUSING ELEMENT I-6 INTRODUCTION
- Focusing new housing within existing developed areas and/or cluster/compact housing in order to preserve surrounding open space (The HE sites inventory focuses exclusively in infill areas)
• The following were identified as the top two housing development strategies (out of 4):
- Encourage new multi-family housing on existing infill sites with access to existing infrastructure (The HE sites inventory focuses exclusively in infill areas) - Provide incentives to increase the production of accessory dwelling units (Addressed in the following HE Program: Promote Accessory Dwelling Units) • The following were common write-in comments on strategies to create more housing opportunities:
- Provide for residential/commercial mixed use (The HE creates new Mixed-Use Overlay) - Provide additional residential infill in Savi Ranch (Several housing sites have been identified in Savi Ranch)
- Provide ADUs for family members or adult children of Yorba Linda residents (Addressed in the following HE Program: Promote Accessory Dwelling Units) - Don’t build near hillsides due to fire dangers and need for adequate emergency evacuation routes (The HE sites inventory focuses exclusively in infill areas) - Overall concerns about housing growth and future traffic congestion (The HE site inventory for RHNA is intended to disperse housing growth throughout the City to limit impacts in any given area)
In order to solicit input from one of Yorba Linda’s most vulnerable populations – senior citizens – the City conducted a Senior Housing Needs survey. This survey was distributed in the following ways:
- Posted on the City website under “City News”;
- Posted on the Housing Element Update webpage;
- Published in the quarterly printed newsletter for Summer 2021; - E-mailed to the Parks & Recreation distribution list of approximately 2,200 people 55 years and older (residents and non-residents); and
- Hard copies distributed at the Senior Center between March 29 and April 9 during the Senior Lunch Program, the drive-thru grocery program, recreational classes and the coffee socials.
A total of 72 seniors completed the Housing Needs Survey, with 60 responding electronically and 12 submitting written responses. A majority of respondents provided email contact information so the City could provide them with housing information in the future, including information on how to add an accessory dwelling unit to their properties. Highlights of the survey responses include:
- 45% of respondents visit the Senior Center and/or receive the Senior Bulletin - 91% did not think adequate information was provided about housing programs for seniors such as senior housing, rental assistance, and help with housing maintenance - On scale of 1-5 (5 being highest), additional affordable senior housing in Yorba Linda, and having senior housing near medical facilities and shopping centers received the highest average score of 3.8.
2021-2029 HOUSING ELEMENT I-7 INTRODUCTION
- 25% of respondents would like information on how to provide an ADU on their property (staff has followed up with these individuals)
Noticing of Workshop and Study Sessions: Noticing for the public workshops and stakeholder meetings were advertised through a display ad in the local newspaper, posted on the City website, and advertised on the City’s social media channels. The City also maintained a stakeholder interest list who received email notification of all meetings, and were directly notified of the availability of the draft Housing Element for review over one week prior to its submittal to the State Department of Housing and community Development (HCD).
This stakeholder list included local housing service providers and housing advocacy organizations, property owners of candidate housing sites, as well as any residents or other stakeholders interested in the Housing Element.
Public Review of Housing Element
The Draft Housing Element was made available for public review on the City’s website starting on August 27, 2021. The City has received four comment letters on the Draft Element to date, and has considered and as deemed appropriate, addressed these comments in the Element.
The following summarizes some of the key comments received and how they are addressed:
• The Element needs to provide additional evidence as to why non-vacant sites can be expected to redevelop within the planning period. (Additional supporting evidence has been added to the sites analysis to justify these conclusions, including trend data showing redevelopment of non-vacant land to residential; the strong market for residential as evidenced by development on all its prior Housing Element sites; and indications of property owner interest in development. The creation of various zoning overlays with regulatory incentives and by-right development opportunities are anticipated to render the 6th cycle Housing Element sites very attractive for development.
• The Element’s projections of future accessory dwelling units exceed past performance and should be revised downward. (The City has revised its ADU projections downward from 137 to 50 ADUs per year. The City approved 27 ADU permits in 2021, an increase of 65% over the previous average three-year history from 2018-2020. Based on the growth trends over the past three years (2019-2021), the City anticipates approving 50 ADU permits in 2022.
Program actions set forth in the Housing Element to provide fee waivers, pre-approved plans, ADU promotion and outreach, and a potential ADU development assistance program for rentrestricted units will further bolster ADU production, making the City’s projections for 50 ADUs/year realistic and achievable. Additionally, the Element includes a specific commitment to conduct a mid-cycle review of ADU production and affordability). • The City’s shortfall in addressing its lower and moderate income RHNA during the 5th cycle Housing Element indicates that the City’s affordable housing policies have not been effective in incentivizing and producing affordable housing for lower income households. (As shown in Table V-2 of the Housing Element, during the 5th cycle Housing Element the City met 80% of its RHNA for very low income households, 57% of its RHNA for low income households, and 17% of its RHNA for moderate income households. While falling short of meeting all its affordable housing needs, the City’s progress received a B grade in the Southern California News Groups’ third annual permit report card published in November 2021, exceeding the County’s overall grade of C. The 6th cycle Housing Element establishes meaningful incentives and opportunities to help the City meet its affordable housing goals).
2021-2029 HOUSING ELEMENT I-8 INTRODUCTION
• The Affirmatively Furthering Fair Housing Analysis (AFFH) doesn’t provide adequate recommendations on how the City will address contributing factors to fair housing issues, or provide sufficient reforms to promote integrated neighborhoods. (Further analysis has been conducted with regards to the following: Patterns of Segregation and Integration; Racially or Ethnically Concentrated Areas of Affluence; Access to Opportunity; and Displacement Risk.
Additional concrete actions with specific metric and milestones have been added to address identified contributing factors, including implementation of SB 9 that will open up single-family zoned neighborhoods to up to four units on an existing parcel).
The City received the State Department of Housing and Community Development’s (HCD) written comments on the draft Housing Element on October 26, 2021, and has made substantive revisions to the Element in response to the State’s comments. The revised Element was made available to the public through direction notification of individuals previously providing written comments and other stakeholders and posting the Element on the City’s website. Two additional comment letters were received on the revised draft Housing Element. The following summarizes these comments and provides responses to each:
• Yorba Linda also assumes every church will build affordable housing. They need evidence that the churches are interested in affordable housing. The City has a significant number of churches that have not been included in the housing sites inventory (refer to Table IV-4 for a complete inventory). The Housing Element only includes those churches that have expressed an interest in having their property rezoned in order to have the ability to provide housing on their properties. This is an emerging trend and we will likely see a significant number of housing units built on church sites over this housing cycle throughout the state. • Several of the Housing Element sites do not appear realistic for development within the 8-year planning period.
S6-015 is a well function new looking commercial building and that is looking for tenants. Staff has spoken with the property owner and they are interested in being included in the rezone effort as a viable option for their future plans with the property. A residual land analysis conducted in December 2021 shows the property owner could obtain a higher rate of return by selling the property under the AHO zoning as opposed to leasing the structure.
S6-026 This extended stay is a 3 story hotel in great condition. This property has a history of code violations and the existing use is undervalued relative to the value of the land. The immediately adjacent Old Canal Road Annex and nearby Mitsubishi site are both examples of the City rezoning for multi-family residential and subsequent redevelopment with housing.
Several other property owners along this portion of Savi Ranch have inquired about residential redevelopment opportunities.
S5-008 This is a steep mountainside. While possible to build on it, a significant portion of the land would be unbuildable. While a portion of this site is not developable, the City Zoning Code allows for density averaging, resulting in higher densities on the portions of the site that are developable. There is strong interest from developers on this site.
S4 -204A and 204 B This is a single-family home. Since identifying these parcels on the list of Housing Element Sites, staff has received significant interest from developers interested in potential development opportunities.
S1-200 It is not realistic to think that 12 different single-family homeowners will sell their homes to the same developer to build housing. Staff has been meeting with these property owners and the majority are supportive of the rezone effort and associated development opportunities.
Yorba Linda’s recent experience with multiple single-family property owners willingly selling their homes for development of the 51-unit Brandywine Project shows that the economic benefits are such this can and will likely happen.
2021-2029 HOUSING ELEMENT I-9 INTRODUCTION
S4-200 They propose adding 2 single family homes with no evidence the owners are interested. The City purchased these two parcels for the purposes of expanding the adjacent Altrudy Lane affordable senior housing project. The City is under contract with C&C Development for 40 affordable senior units on this site, pending approval of the rezoning under the Measure B election in November 2022.
S4-205 They are proposing a site with maybe 30 different owners. The City is not proposing 30 units on one site. The Yorba Linda Town Center Specific Plan allows for the addition of one unit on each existing parcel in the City’s Historic District, providing housing in walking distance of commercial.
• The City’s requirement for design review and parking for SB 9 lot splits is inconsistent with State law. SB 9 allows jurisdictions to establish written, objective design review standards for SB 9 housing developments, which the City has done. There are some specific situations where the City is requiring Design Review, such as when an SB 9 housing development proposes to be established on a lot with non-conforming uses or development standards or when the proposed housing development creates inadequate water/sewer capacity, or creates significant traffic flow or public safety concerns. Design Review is not typically required for SB 9 housing developments and urban lot splits. Furthermore, SB 9 allows for jurisdictions to require a minimum of one parking space for each SB 9 unit unless the parcel is located within a half-mile of a high-quality transit corridor or major transit stop, or when there is a car share vehicle located within one block of the parcel. Therefore, the City’s parking standards and design review requirements are consistent with SB 9.
The public will continue to have opportunities to provide comments on the Element at the Planning Commission and City Council public hearings to be conducted in January and February 2022.
Continued Outreach Moving Forward
To ensure the success of Yorba Linda’s housing policies and programs moving forward, it will be important for the City to continue to engage the community to receive ongoing feedback. The following summarizes some of the outreach to be conducted during the planning period, as presented in the Housing Programs Summary Table V-5:
• Conduct community-wide outreach and education on the proposed rezone sites, the City’s past experience with affordable and mixed income housing, and the Measure B ballot initiative.
• Conduct fair housing information sessions and utilize social media to expand information on fair housing and tenant/landlord services available through the Fair Housing Council of Orange County, with targeted outreach to tenants, mobile home park residents, and other lower income populations.
• Provide outreach and education to residents on the ADU development process and available incentives.
• Continue to conduct outreach to property owners of Housing Element sites to discuss opportunities for development and lot consolidation.
2021-2029 HOUSING ELEMENT I-10 INTRODUCTION
D. RELATIONSHIP TO OTHER GENERAL PLAN ELEMENTS
Yorba Linda’s 5th cycle 2014-2021 Housing
Element was coordinated with a comprehensive
update of the City’s General Plan, which revisited
the community’s priorities and vision for the
future, looking out over a 20-year horizon. The
updated Yorba Linda General Plan is comprised
of the following elements:
• Land Use
• Housing
• Circulation and Mobility
• Open Space and Parks and Recreation
• Conservation
• Safety
• Noise
• Economic Development
• Community Design
• Historic Resources
The current 6
th cycle 2021-2029 Housing Element update maintains this internal General Plan consistency. Whenever any element of the General Plan is amended in the future, the Housing Element will be reviewed and modified, if necessary, to ensure continued consistency among General Plan elements.
2021 - 2029 HOUSING ELEMENT II-1 HOUSING NEEDS ASSESSMENT II. HOUSING NEEDS ASSESSMENT
This section of the Housing Element discusses the characteristics of the City’s population and housing stock as a means of better understanding the nature and extent of unmet housing needs. The Housing Needs Assessment is comprised of the following components: A) Demographic Profile; B) Household Profile; C) Housing Stock Characteristics; and D) Regional Housing Needs.
A. DEMOGRAPHIC PROFILE
Demographic changes such as population growth or changes in age can affect the type and amount of housing that is needed in a community. This section addresses population, age, and race and ethnicity of Yorba Linda residents.
1. Population Growth and Trends
Table II-1 presents population growth trends in Yorba Linda from 1990-2020, and compares this growth to neighboring jurisdictions and the entire County of Orange. Orange County experienced a high level of growth during the 1990s (18%), but it reduced considerably in the 2000s and 2010s (6%). Yorba Linda experienced growth in the 1990s (12%) that was similar to other neighboring cities, with the exception of Anaheim. Since 2000, Yorba Linda’s growth has decreased, although it is still higher than most neighboring communities.
In terms of future trends, Orange County Projections (OCP) 2018 forecasts a modest 2.4% increase in Yorba Linda’s population between 2020 and 2030 period for an estimated population of just under 71,100 in 2030. Orange County as a whole is projected to grow by about five percent in the same time period.
Table II-1: Regional Population Growth Trends 1990 – 2020 Jurisdiction 1990 2000 2010 2020
Percent Change
1990-
2000
2000-
2010
2010-
2020
Anaheim 266,406 328,014 336,265 357,325 23% 3% 6%
Brea 32,873 35,410 39,282 45,629 8% 11% 16%
Fullerton 114,144 126,003 135,161 141,863 10% 7% 5%
Placentia 41,259 46,488 50,533 51,494 13% 9% 2%
Yorba Linda 52,422 58,918 64,234 68,650 12% 9% 7%
Orange
County 2,410,556 2,846,289 3,010,232 3,194,332 18% 6% 6% Source: U.S. Census 1990, 2000 and 2010; Dept of Finance 2020 Population and Housing Estimates.
2021 - 2029 HOUSING ELEMENT II-2 HOUSING NEEDS ASSESSMENT
2. Age Characteristics
Table II-2 displays the age distribution of the City’s population in 2000 and 2020, and compares this with Orange County as a whole. As displayed in the table, 24 percent of Yorba Linda’s population is comprised of children under the age of 18, which is comparable to the Countywide population. A comparison of the 2000 and 2020 Census shows a decrease in the proportion of school age children (from 23% to 18%).
The biggest change in Yorba Linda’s age profile is a shift from a younger population to a more mature population. This aging trend is borne out by an increase in the median age from 37.4 years in 2000 to 42.1 years in 2020, well above the Countywide median age of 38.3 years.
The City evidenced a slight decline in its young adult (25-44 years) population over the two decades (from 28% to 24%), while the middle adult population stayed about the same (27% in 2000 and 26% in 2020). The only age group to experience an increase since 2000 was the senior population. This group grew by almost 10,000 persons and now comprises 21 percent of Yorba Linda’s residents. The stable percentage of the middle age population and increase in senior citizens illustrates an aging in place in the city and the limited number of new young adults and families moving into the community due in part to high housing costs. As discussed later in the section, Yorba Linda has also experienced a decline in the number of families with children over the past two decades.
Table II-2: Age Distribution 2000 – 2020
Age Group
2000 2020
Persons Percent Persons Percent
Orange
Co. %
Preschool (<5 yrs) 3,507 6% 4,394 6% 6%
School Age (5-17 yrs) 13,756 23% 11,945 18% 16%
College Age (18-24 yrs) 4,273 7% 3,570 5% 9%
Young Adults (25-44 yrs) 16,757 28% 16,476 24% 27%
Middle Age (45-64 yrs) 16,099 27% 17,849 26% 27%
Seniors (65+ years) 4,526 8% 14,417 21% 15%
TOTAL 58,918 100% 68,650 100% 100%
MEDIAN AGE 37.4 years 42.1 years 38.3 years
Source: U.S. Census 2000; American Community Survey 2014-2018; Dept of Finance 2020 Population and Housing Estimates.
2021 - 2029 HOUSING ELEMENT II-3 HOUSING NEEDS ASSESSMENT
3. Race and Ethnicity
Table II-3 displays the racial/ethnic composition of Yorba Linda’s population in 2000 and 2020, and compares this with the Countywide distribution. White residents continue to represent the vast majority of the City’s population, though similar to the region, have continued to decrease in relative proportion, declining from 75 percent in 2000 to 59 percent in 2020.
Although the City’s Asian/Pacific Islander and Hispanic populations increased (from 11% to 18% and 10% to 16%, respectively) over the past two decades, they are still below the Countywide percentages of these populations. The African American population more than doubled since 2000 and now make up two percent of Yorba Linda’s residents while American Indians remained at less than one percent. Those residents identifying as Other Race more than doubled and now comprise five percent of the City’s population. Despite Yorba Linda’s increasing diversity, the City remains less ethnically diverse than Orange County as a whole.
Table II-3: Racial and Ethnic Composition 2000 – 2020
Racial/Ethnic Group
2000 2020
Persons Percent Persons Percent
Orange
Co. %
White 44,071 75% 40,298 59% 40%
Asian/Pacific Islander 6,593 11% 12,357 18% 34%
Hispanic 6,044 10% 11,121 16% 21%
African American 688 1% 1,442 2% 2%
American Indian 220 <1% 206 <1% <1%
Other Race 1,302 2% 3,227 5% 3%
TOTAL 58,918 100% 68,650 100% 100%
Source: U.S. Census 2000; American Community Survey 2014-2018; Dept of Finance 2020 Population and Housing Estimates.
2021 - 2029 HOUSING ELEMENT II-4 HOUSING NEEDS ASSESSMENT
4. Employment
While Yorba Linda is primarily a residential community, the City has a growing business community with an estimated 17,384 jobs in 2016, and projected 18,762 jobs by 2030.1 Through various economic development initiatives, the City is actively recruiting new businesses, particularly those that will generate additional sales tax revenue. The recent opening of the City’s first automotive dealerships in more than a decade are an important sign of this, as well as the new Town Center that has added over 125,000 sq. ft. of retail space.
Table II-4 identifies the largest employers in Yorba Linda, and illustrates the strong presence of medical research and services; restaurants and retail. The City’s Savi Ranch development, a major retail center, accounts for 65% of sales tax revenues generated in Yorba Linda and is home to several of the City’s major employers.
Table II-4: Major Employers in Yorba Linda
❖ Nobel Biocare ❖ Coldwell Banker
❖ Costco Wholesale Corporation ❖ Robert Moreno Insurance Services ❖ Vyaire Medical ❖ Vons
❖ Emeritus at Yorba Linda ❖ Kohl’s
❖ Office Solutions ❖ City of Yorba Linda
❖ White House Catering ❖ Placentia-Yorba Linda School District Source: City of Yorba Linda, 2019 City of Yorba Linda Profile Table II-5 presents the distribution of jobs by industry type in Yorba Linda. Education and health is the most dominant employment sector (20.2%), followed by leisure and hospitality (14.4%), professional management (14.3%) and retail (11.7%).
Table II-5: Employment Sectors
Industry Sector % Total Jobs
Education/Health 20.2%
Leisure/Hospitality 14.4%
Professional Management 14.3%
Retail 11.7%
Construction 9.4%
Finance/Insurance/Real Estate 7.6%
Manufacturing 6.1%
Wholesale 5.5%
Other Services (excluding Public Administration) 5.1%
Transportation 3.2%
Information 0.9%
Public Administration 0.9%
Agriculture 0.6%
TOTAL 100%
Source: City of Yorba Linda, 2019 City of Yorba Linda Profile 1 Southern California Association of Governments, 2019 Profile of the City of Yorba Linda.
Center for Demographic Research, CSUF, Orange County Projections, Prepared July 18, 2018.
2021 - 2029 HOUSING ELEMENT II-5 HOUSING NEEDS ASSESSMENT Over 40 percent of Yorba Linda’s primary employment is in lower paying retail, hospitality, construction and service-related industries, with wages generally below the level necessary to afford to live in the City. The Census2 documents that 93 percent of persons employed within Yorba Linda commute in from outside the City limits, indicative of the shortage of local affordable housing opportunities for the community’s workforce. However, Yorba Linda is not unique among Orange County communities in this regard, with the cities of Anaheim, Brea, Fullerton and Orange exhibiting similarly high proportions of their workforce commuting in from outside the City limits. On a countywide basis, 43 percent of persons employed within Orange County are commuting in from other counties, compared to 23 percent in Los Angeles County and just 19 percent in San Diego County.
Workforce Housing Scorecard
Since 2008, the Orange County Business Council has periodically published a Workforce Housing Scorecard. The 2019-20 edition looked at trends that will impact the County’s housing, economy and business climate going forward. The initial Workforce Scorecard published in 2008 identified the significant shortage of housing for the County’s growing workforce, and its impact on the ability of employers to attract and maintain key workforce talent. The most recent report found that the workforce housing issue continues and has disproportionately affected Orange County due to its expensive housing market. In addition, housing construction has slowed. In 2018, 7,545 building permits were issued in Orange County compared to 9,567 in 2017 and 11,982 in 2016. As a result of these factors, many County residents have chosen to relocate to areas with more affordable housing opportunities such as Riverside and San Bernardino Counties. Data from the Internal Revenue Service showed that in 2015-16, 28 percent of residents leaving Orange County were between the ages of 35 to 44, while another third were in the 26 to 34 and 45 to 54 age groups. This outmigration leads to a shortage of workers for the County’s economic base. The Workforce Housing Scorecard estimates that the jobs-to-new housing ratio between 2016 and 2045 is projected to be 2.17 jobs created for every new housing unit built, exacerbating the challenge of housing the County’s workforce.
The Workforce Housing Scorecard ranks Orange County jurisdictions in terms of generating new jobs and the supply of housing appropriate to house these new workers. Yorba Linda was ranked 24 out of 34 cities plus the unincorporated area for the 2016-2030 time period.
The City is projected to move to 29th place for the years 2030-2045, indicating continued challenges for the City to achieve a healthy jobs-to-housing balance. The Report concludes:
“Overall job and housing growth through 2045 is expected to be focused in central portions of Orange County, especially in major cities such as Irvine and Anaheim.
Housing supply, however, is predicted to lag behind employment growth, suggesting the region’s housing supply and affordability concerns will continue for decades to come. Infill redevelopment, policy shifts and zoning changes permitting higher-density development and the repurposing of obsolete malls and retail centers into mixed-use residential lifestyle communities are essential for Orange County’s large municipalities and neighboring cities if the region hopes to achieve a workable jobs-housing ratio and a thriving, prosperous economy”.3
2 OnTheMap Application. http://onthemap.ces.census.gov
3 Orange County Business Council, 2019-20 Workforce Housing Scorecard.
2021 - 2029 HOUSING ELEMENT II-6 HOUSING NEEDS ASSESSMENT B. HOUSEHOLD PROFILE
Household type and size, income levels, and the presence of special needs populations all affect the type of housing needed by residents. This section details the various household characteristics affecting housing needs in Yorba Linda.
1. Household Type
A household is defined as all persons living in a housing unit. Families are a subset of households, and include persons living together related by blood, marriage, or adoption. A single person living alone is also a household. “Other” households are unrelated people residing in the same dwelling unit. Group quarters, such as dormitories or convalescent homes are not considered households.
As shown in Table II-6, the California Department of Finance estimates 23,094 households in Yorba Linda in 2020. The City’s average household size is 2.91, which is a decrease from the year 2000 and is also lower than the County’s household size of 3.02. This decrease in household size reflects the decline in family households with children, and increase in senior citizens over the past two decades.
Families comprise the overwhelming majority of households in Yorba Linda (79%), including families with children (33%), and those without children (46%). However, over the past two decades, the number of families with children decreased by approximately 1,000, resulting in a decline in their relative proportion from 45 to 33 percent of all households. In contrast, the proportion of family households without children increased from 39 to 46 percent, and singleperson households increased from 12 to 19 percent. Approximately 80 percent of the City’s net growth in 3,842 new households between 2000 and 2020 was due to the growth in family households without children living at home.
Table II-6: Household Characteristics 2000 – 2020
Household Type
2000 2020 Orange
Households Percent Households Percent Co. %
Families 16,096 84% 18,198 79% 71%
With children 8,619 (45%) 7,621 (33%) (30%)
Without children 7,477 (39%) 10,531 (46%) (41%)
Singles 2,387 12% 4,295 19% 22%
Other non-families 769 4% 531 2% 7%
Total Households 19,252 100% 23,094 100% 100%
Average Household Size 3.05 2.91 3.02
Average Family Size 3.35 3.27 3.54
Source: U.S. Census 2000; American Community Survey 2014-2018; Dept of Finance 2020 Population and Housing Estimates.
2021 - 2029 HOUSING ELEMENT II-7 HOUSING NEEDS ASSESSMENT
2. Household Income
The following table presents household income levels for Orange County.
Table II-7: State Income Categories
Income
Category
% County
Area Median
Income (AMI)
2020 Orange County Income Limits
1 person
household
2 person
household
3 person
household
4 person
household
Extremely Low 0-30% AMI $26,950 $30,800 $34,650 $38,450 Very Low 0-50% AMI $44,850 $51,250 $57,650 $64,050
Low 51-80% AMI $71,750 $82,000 $92,250 $102,450
Moderate 81-120% AMI $86,500 $98,900 $111,250 $123,600
Above Moderate 120%+ AMI > $86,500 > $98,900 >$111,250 >$123,600 Source: California Department of Housing and Community Development, 2020 Income Limits.
Table II-8 presents the distribution of household income in Yorba Linda by income category.
As shown, 28 percent of Yorba Linda’s households are considered lower income (0-80% AMI), an increase from 2010 when 22 percent were lower income. Extremely low-income (ELI) households (<30% AMI) comprise six percent of households; among Yorba Linda’s 1,414 ELI households, 56 percent are renters and 44 percent are homeowners, with seniors comprising 58 percent of all ELI households. This relatively high percentage of ELI homeowners is likely reflective of seniors who have lived in the community for many years, as well as occupants in the City’s mobile home parks, and senior citizens who are “house rich and cash poor”. With three-quarters of Yorba Linda’s ELI households spending greater than half their incomes on housing costs, housing overpayment and insecurity is a significant issue among ELI renters and homeowners alike. The Housing Element includes programs to assist with affordable rental housing including Affordable Housing Overlays, Affordable Housing Development Assistance, Section 8 Rental Assistance, and Accessory Dwelling Units, as well as programs to assist homeowners spending a large portion of their incomes on housing costs including supporting ELI homeowners in adding accessory dwelling units that can generate rental income, and providing housing rehabilitation assistance. The Element also includes a new program to specifically support housing opportunities for ELI households.
Table II-8: Household Income Distribution 2016
Income Level Households Percent
Extremely Low Income (0-30% AMI) 1,414 6%
Very Low Income (31-50% AMI) 2,030 9%
Low Income (51-80% AMI) 2,739 13%
Median Income (80-100% AMI) 1,925 9%
Above Median Income (>100% AMI) 13,655 63%
TOTAL 21,763 100%
Source: SCAG Pre-Certified Housing Data, August 2020.
Note: Household count differs from 2020 Dept of Finance count depicted in Table II-6.
Many of the workers who make up Yorba Linda’ workforce earn modest incomes, making it challenging to afford to live in the City. Table II-9 presents a sampling of occupations in Yorba Linda which fall within very low-, low- and moderate-income thresholds (based on a single worker household). The analysis of housing costs and affordability presented later in this section compares current market rents and sales prices in Yorba Linda with the amount that
2021 - 2029 HOUSING ELEMENT II-8 HOUSING NEEDS ASSESSMENT households of different income levels can afford to pay for housing. This analysis illustrates that very low and even most low income occupations, such as paramedics and social workers, cannot afford the median rent in Yorba Linda.
Table II-9: Orange County Wages for Select Occupations 2020 Very Low Income (<$51,250) Mean Hourly
Wage
Mean
Annual
Income
Max.
Affordable
Housing Cost
Home Health and Personal Care Aides $14.37 $29,879 $747 Child Care Workers $15.79 $32,845 $821
Retail Salespersons $16.24 $33,791 $845
Bank Tellers $16.27 $33,833 $846
Security Guards $16.33 $33,965 $849
Waiters/Waitresses $17.41 $36,213 $905
Nursing Assistants $17.98 $37,402 $935
Preschool Teachers, except Special Ed $18.15 $37,754 $944 Bus Drivers, Transit and Intercity $22.33 $46,446 $1,161 Retail Sales Manager $22.73 $47,277 $1,182
Bookkeeping, Accounting & Auditing Clerks $24.05 $50,018 $1,250 Low Income ($51,250-$82,000) Mean Hourly
Wage
Mean
Annual
Income
Max.
Affordable
Housing Cost
Emergency Med. Technicians/Paramedics $26.83 $55,820 $1,396 Tax Preparers $27.63 $57,468 $1,438
Child, Family, and School Social Workers $28.65 $59,586 $1,490 Architectural and Civil Drafters $30.58 $63,613 $1,590
Carpenters $33.52 $69,721 $1,743
Librarians $35.43 $73,694 $1,842
Occupational Therapy Assistant $35.63 $74,118 $1,853
Market Research Analyst $35.72 $74,286 $1,857
Real Estate Agent $37.07 $77,108 $1,928
Moderate Income ($82,000-$98,900) Mean Hourly
Wage
Mean
Annual
Income
Max.
Affordable
Housing Cost
Firefighters $41.84 $87,032 $2,176
Radiologic Technicians $42.74 $88,894 $2,222
Architects (except Landscape and Naval) $42.87 $89,177 $2,229 High School Teachers (except Special Ed.)1 n.a. $90,857 $2,271 Property and Real Estate Managers $43.82 $91,144 $2,279 Postmasters and Mail Superintendents $45.32 $94,270 $2,357 Computer Programmers $45.51 $94,659 $2,366
Source: 2020 California Occupational Employment Statistics – Orange County; 2020 State HCD Income Limits (Income categories based on two-person household with single wage earner).
Max affordable housing cost based on 30% of income.
1 Not feasible to calculate hourly wage as workers do not work full-time all year round.
2021 - 2029 HOUSING ELEMENT II-9 HOUSING NEEDS ASSESSMENT
3. Special Needs Populations
State law recognizes that certain households have more difficulty in finding adequate and affordable housing due to special circumstances. Special needs populations include the elderly, persons with disabilities, female-headed households, large households and farmworkers. In addition, many often have lower incomes as a result of their condition. Table II-10 summarizes the special needs populations in Yorba Linda. Each of these population groups, as well as their housing needs, is described below.
Table II-10: Special Needs Populations 2020
Special Needs Groups Persons Households Percent1
Seniors (65+) 14,417 21%
With a Disability* 3,027 (21%)
Senior Households 7,944 34%
Renter 794 (10%)
Living Alone 365
Owner 7,150 (90%)
Living Alone 2,002
Persons Living with Disabilities 4,531 7%
Large Households 2,309 10%
Renter 231 (10%)
Owner 2,078 (90%)
Female-Headed Households* 1,386 6%
with Related Children* 540 (39%)
Farmworkers* 74 <1%
TOTAL Persons/Households 68,650 23,094
Source: American Community Survey 2014-2018; Dept. of Finance 2020 Population and Housing Estimates.
1 SCAG Pre-Certified Housing Data, August 2020.
Note: Numbers in ( ) reflect the % of the special needs group, and not the % of the total City population/households. For example, of the City’s senior households, 10% are renters and 90% are owners.
2021 - 2029 HOUSING ELEMENT II-10 HOUSING NEEDS ASSESSMENT Senior Households
In 2020, approximately 21 percent (14,417) of Yorba Linda’s residents were over the age of 65, reflecting an increase in over 6,800 seniors over the past decade. Approximately 21 percent have some type of disability related to self-care or mobility, which may limit their ability to live independently. About one-third of Yorba Linda’s households are headed by a senior, the majority of which are homeowners (90%). Approximately 30 percent of the City’s senior homeowners live alone, and over the long term may require supportive services to remain independent in their homes.
The elderly have a number of special needs including housing, transportation, health care, and other services. Rising rents are a particular concern due to the fact that most seniors are on fixed incomes. Of Yorba Linda’s 794 senior renter households, 81 percent are lower income, with over one-third (35%) extremely low income. As shown later in Table II-23, Yorba Linda has three affordable senior housing projects providing 271 rental units to a mix of very low and low-income households. In addition, as of October 2021, 67 senior residents received Section 8 rental assistance.
The State of California Community Care Licensing Division identifies the following residential care homes for the elderly in Yorba Linda:
• Assisted Living Facilities (seniors age 60+ requiring 24 hours assisted living) o 30 residential care homes for four to six persons each (176 persons) o ActivCare: a 60-person memory care
o Sunrise at Yorba Linda: a 93-person facility that also provides memory care • Continuing Care Retirement Communities (variety of care levels to meet residents’ needs) o Brookdale:135-person capacity with assisted living, skilled nursing and memory care o Eastern Star: 76-person capacity with independent, assisted living and memory care For those seniors who live on their own, many have limited incomes and physical limitations, both of which may inhibit their ability to maintain their homes or perform minor repairs.
Furthermore, the installation of grab bars and other assistance devices in the home may be needed. The City offers a Residential Rehabilitation Program which provides grants to lower income home owners, including senior and disabled households, with funding for necessary material and supplies for home repairs and improvements. This program can assist home owners with the cost of installing assistance devices.
The City of Yorba Linda coordinate a number of senior activities, many of them taking place at the City’s Community Center. Programs offered include recreational and social activities, a meals program, food distribution, preventative healthcare, and transportation services.
Newsletters and activity calendars are available on the City’s website.
Large Households
Large households consist of five or more persons and are considered a special needs population due to the limited availability of affordable and adequately sized housing. The lack of large units is especially evident among rental units. Large renter households are vulnerable to overcrowding due to the shortage of adequately sized rentals, and insufficient income to afford available units of adequate size.
2021 - 2029 HOUSING ELEMENT II-11 HOUSING NEEDS ASSESSMENT In Yorba Linda, large households comprise ten percent of total households in the City (refer to Table II-10 above). Of these large households, just ten percent, or 231 households, are renters with 90 percent (2,078) being owner households.
Yorba Linda’s housing stock includes approximately 1,350 rental units with three or more bedrooms, in general, the appropriate-sized unit to house the city’s 231 large renter households (2014-2018 American Community Survey). While numerically there may be a sufficient number of large rental units, the problem is primarily related to the lack of affordability of these larger units. Market rents for a 3-bedroom apartment exceed the level of affordability for lower income large family households. The level of renter overpayment has increased by eleven percent over the past decade, an indication that the rents for larger units may result in overpayment challenges for some larger families.
Female-Headed Households
Single-parent households typically have a special need for such services as childcare and health care, among others. Female-headed households with children in particular tend to have lower incomes, which limits their housing options and access to supportive services. The American Community Survey and Department of Finance reports 1,386 female-headed family households in Yorba Linda; 540 of these households had children. Of those households with children, 22 percent lived in poverty, compared to a poverty rate of just three percent among all Yorba Linda families. These households need assistance with housing subsidies, as well as accessible and affordable day care. Without access to affordable housing, many of these households may be at risk of becoming homeless.
Persons with Disabilities
A disability is defined as a long-lasting physical, mental, or emotional condition that impairs an individual’s mobility, ability to work, or ability for self-care. The special needs of disabled persons result from limited, often fixed incomes; shortage of accessible housing; and higher health care costs associated with their disability.
As shown in Table II-10, Yorba Linda has an estimated 4,531 residents with one or more disabilities, representing seven percent of the City’s population. As reported in SCAG’s PreCertified Housing Data, ambulatory disabilities are most prevalent, followed by independent living, hearing and cognitive disabilities.
Disability Type Persons
Ambulatory 2,300
Independent Living 2,045
Hearing 1,705
Cognitive 1,613
Self-Care 898
Vision 737
2021 - 2029 HOUSING ELEMENT II-12 HOUSING NEEDS ASSESSMENT Of the City’s senior population, 21 percent suffer from a disability. As Yorba Linda’s population continues to age, the number of residents with disabilities will also increase.
The living arrangements for persons with disabilities depends on the severity of the disability.
Many persons live at home in an independent environment with the help of other family members. To maintain independent living, disabled persons may require assistance. This can include special housing design features for the physically disabled, income support for those who are unable to work, and in-home supportive services for persons with medical conditions. Accessible housing can also be provided via senior housing developments.
In addition to accessible housing, persons with disabilities may require supportive housing and assistance. For those persons who may require or prefer assistance with care and supervision, licensed community care facilities offer special residential environments for persons with physical, mental, and/or emotional disabilities. According to the State Community Care Licensing Division identifies one adult residential facility (6 person capacity) in Yorba Linda that provides 24-hour non-medical care for adults age 18-59 who are unable to provide for their own daily needs. The State also has licensed one adult care facility (5 person capacity) for people with special health care needs. A far greater number of licensed care facilities are available for seniors in Yorba Linda, many of whom may also have disabilities, with 32 residential care facilities for the elderly, providing capacity for 329 persons, in addition to two continuing care communities serving 211 persons.
Developmental Disabilities
According to Section 4512 of the Welfare and Institutions Code, a “developmental disability” means a disability that originates before an individual attains age 18 years, continues, or can be expected to continue, indefinitely, and constitutes a substantial disability for that individual, which includes mental retardation, cerebral palsy, epilepsy, and autism. Many developmentally disabled persons can live and work independently within a conventional housing environment. More severely disabled individuals require a group living environment where supervision is provided. The most severely affected individuals may require an institutional environment where medical attention and physical therapy are provided. Because developmental disabilities exist before adulthood, the first issue in supportive housing for the developmentally disabled is the transition from the person’s living situation as a child to an appropriate level of independence as an adult.
The California Department of Developmental Services provides community-based services to persons with developmental disabilities and their families through a statewide system of 21 regional centers. The goal of these centers is to: 1) prevent/minimize institutionalization of developmentally disabled persons and their dislocation from family and community; and 2) enable this population to lead more independent and productive lives. The Regional Center of Orange County (RCOC) serves approximately 22,000 individuals with developmental disabilities and their families. Within Yorba Linda’s two zip codes, the Regional Center currently provides services to 399 residents with developmental disabilities, generating an estimated need for 135 housing units:
2021 - 2029 HOUSING ELEMENT II-13 HOUSING NEEDS ASSESSMENT Table II-11: Developmentally Disabled Residents Served by RCOC Zip Code
0 - 14
years
15 - 22
years
23 - 54
years
55 - 65
years
65+
years
Total
92886 104 59 112 11 6 292
92887 45 26 35 1 0 107
Citywide Total 149 85 147 12 6 399
Est. Housing Need1 37 43 51 3 1 135
Source: Regional Center of Orange County (RCOC), 2020
1 The following need factors developed by the Golden Gate Regional Center can be used to estimate housing needs for the developmentally disabled population by age group: age 0-14 25% need hsg; age 15-22 50% need hsg; age 23-54 35% need hsg; age 55-65 25% need hsg; age 65+ 20% need hsg.
Among Yorba Linda residents served by the regional center, approximately 96 percent live with a parent, family member or guardian and four percent live in an intermediate care facility.4 These percentages highlight the need for people with developmentally disabled family members to have a variety of housing choices to provide ongoing care and support.
The RCOC has several informational resources on their website about housing options for people with developmental disabilities. In 2013, the RCOC published a paper in conjunction with the Regional Centers Housing Advocacy Council that looked at the housing needs of developmentally disabled persons in the county.5 The paper stated that the housing needs for developmentally disabled residents mirrored those of seniors and aging adults and safe, affordable housing options were needed. The regional centers have identified a number of community-based housing types appropriate for persons living with a developmental disability:
licensed community care facilities and group homes; supervised apartment settings with support services; SB 962 homes (for persons with special health care and intensive support needs); and for persons able to live more independently, rent subsidized homes, inclusionary housing, and Section 8 rental vouchers. In addition to services offered through the Regional Center, Project Independence in Costa Mesa has assisted hundreds of developmentally disabled individuals to gain the necessary skills to live independently.
Orange County has the following housing facilities to serve persons with developmental disabilities6:
• Harbor Village in Costa Mesa – apartment complex that is a joint project between the RCOC and the California Department of Developmental Services. Approximately 52 units are leased to persons with developmental disabilities and 15 of these units are certified to serve people with significant needs.
• Integrity Cottages in Anaheim – a former motel that has been converted into 48 affordable rental units.
• Parc Derian in Irvine – 4 units in this new complex are designated for persons with developmental disabilities. Other units are set aside for veterans and formerly homeless households.
4 California Department of Developmental Services, Consumer County by California ZIP Code and Residence Type. Regional Center and Early Start Consumers, June 2020. 5 Regional Center of Orange County, “Housing for People with Developmental Disabilities in Orange County,” January 20, 2013.
6 Regional Center of Orange County website: www.rcocdd.com/housing
2021 - 2029 HOUSING ELEMENT II-14 HOUSING NEEDS ASSESSMENT Yorba Linda supports the provision of housing for persons with disabilities, and has adopted provisions in its Zoning Code to enable community care facilities and supportive housing, and has adopted provisions for reasonable accommodation. Housing Element programs to facilitate affordable housing can also assist residents with developmental disabilities, with funding available through the State’s Multi-family Housing Program (MHP) Supportive Housing component.
Homeless
Every two years, the Orange County Housing and Community Development/Homeless Prevention and its partners conduct a Point-In-Time Homeless Count and Survey (PITS) to collect data on the number and characteristics of the homeless in Orange County. The 2019 PIT7identified 6,860 homeless individuals in the County, including 1,550 persons in families with children (23%). The following summarizes some of the survey’s key findings:
• Approximately 58% of the homeless counted were unsheltered, with 42% in shelter facilities, including emergency shelters and transitional housing programs. • Transitional aged youth (ages 18 to 24) comprised four percent of the individuals surveyed while seniors (ages 62 and older) made up nine percent of the respondents. • 38% of the unsheltered adults surveyed indicated this was their first episode of homelessness
• Approximately 85 percent of homeless respondents indicated they had one or more disabling conditions, including 21% with a physical disability, 24% suffering from mental illness, 8% experiencing domestic violence, and 28% currently using alcohol and/or other drugs
The North Service Planning Area (North SPA), which includes the City of Yorba Linda, had a total of 2,765 individuals included in the PIT count, comprising 40 percent of the total homeless population in the County. In terms of Yorba Linda itself, on the night of the count, one unsheltered individual (transitional aged youth) was located in in the City.
Yorba Linda is participating in the North SPA to develop a regional approach to address homelessness, including the development of two Navigation Centers in the region. The Navigation Centers in Buena Park and Placentia and services to the homeless including shelter (Buena Park – 100 beds, Placentia – 100 beds), health resources, substance abuse services, and job skills. The goal of these Centers is to help homeless individuals become productive members of their communities while reducing the number of homeless in public areas.
“2-1-1 Orange County” was established in 2005 to provide a comprehensive information and referral system to link County residents with community health and human services support.
The service is available seven days a week, 24 hours a day. Callers are connected with certified, multi-lingual information and referral specialists who utilize a database to provide information on services including shelter and housing resources, food, and substance abuse assessment and treatment.
7 http://ochmis.org/wp-content/uploads/2019/08/2019-PIT-FINAL-REPORT-7.30.2019.pdf
2021 - 2029 HOUSING ELEMENT II-15 HOUSING NEEDS ASSESSMENT Table II-12 provides an inventory of facilities and services for the homeless in North Orange County that serve Yorba Linda.
The City of Yorba Linda is actively involved with local initiatives and agencies to help with homelessness. The City’s actions include:
• One City Council member is appointed to represent Yorba Linda on the Orange County Bridges at Kraemer Place Advisory Board. Bridges at Kraemer Place is a year-round emergency shelter located in Anaheim that serves 200 men and women;
• Through the Orange County Sheriff’s Department, the City has its own Homeless Liaison Officer (HLO) assigned to patrol and provide resources to the homeless community. HLOs receive additional training on mental illness and how to connect the homeless population with available services and resources; and • Yorba Linda’s affordable housing program that extends both home ownership and rental housing opportunities to low- and moderate-income households in the city.
A list of affordable housing locations is included on the City’s website.
Farmworkers
Farmworkers are traditionally defined as persons whose primary incomes are earned through seasonal agricultural work. Farm workers have special housing needs because they earn lower incomes than many other workers and move throughout the season from one harvest to the next.
In 2017, the Census of Agriculture from the US Department of Agriculture (USDA) documented that out of California’s approximate 377,500 agricultural workers, less than one percent (1,772) are located within Orange County. In Southern California, agricultural workers are primarily located in San Diego, Riverside and Santa Barbara Counties. According to the Local Profile data compiled by SCAG, just 74 Yorba Linda residents are employed in the industries of farming, fishing or forestry, representing just 0.33% of the City’s labor force. No land within Yorba Linda is designated for agricultural use. This is also the case in the surrounding communities. Since the persons employed in agriculture is extremely limited, the housing needs of this group are addressed under Yorba Linda’s overall programs for affordability.
2021 - 2029 HOUSING ELEMENT II-16 HOUSING NEEDS ASSESSMENT Table II-12: Inventory of Homeless Services and Facilities - North Orange County Organization Beds and/or Services Provided
Armory Emergency Shelter – Fullerton
801 W. Valencia Dr.
Fullerton, CA 92832
(714) 213-9815
Provides shelter and services during the cold winter
months for men and women. Offer meals, case
management and other services.
Bridges at Kraemer Place
1000 N. Kraemer Place
Anaheim, CA 92806
(714) 678-5337
Provides 200 emergency beds for single men and
women for up to 180 days. Priority is given for those
living in the North Orange County area. The goal of
the shelter is creating a housing plan and securing
permanent housing.
Costa Mesa Bridge Shelter
1885 Anaheim Avenue
Costa Mesa, CA 92627
(714) 836-7188 ext. 170
Provides 50 temporary beds (on a reservation basis)
as well as case management, housing assistance,
and connections to job searches and legal services.
Fullerton Interfaith Emergency Services
(New Vista Shelter)
244 E. Valencia, Room 16
Fullerton, CA 92634
(714) 680-3691
Provides transitional housing for families and singles
for up to 4 months. Also provides food, basic
supplies, case management, referrals, and childcare
assistance.
H.I.S. House
P.O. Box 1293
Placentia, CA 92670
(714)993-5774
Provides 40 beds for families and individuals for up
to 6 months. Services include job counseling and
referrals, job training, financial management,
counseling, and life skills classes.
HomeAid Orange County Family
CareCenter
Orange, CA
(949)777-3865
Provides short-term temporary housing for 10 to 15
families (45-day maximum). Services such as case
management and housing assistance are provided
by Mercy House Living Centers.
Lutheran Social Services
215 N. Lemon Street
Fullerton, CA
(714) 738-1058
Provides clothing, limited transportation, referrals,
prescriptions, utilities, counseling and English as a
Second Language (ESL) classes.
Orange County Rescue Mission
One Hope Drive
Tustin, CA 92782
(714) 247-4300
Provides transitional and emergency housing,
including housing for domestic violence victims,
families and singles. Provides food assistance,
counseling, education, job training, mental wellness,
life skill training, and medical services to provide a
solid foundation for the transition to self-sufficiency.
Placentia Navigation Center
S. Melrose Street
Placentia, CA 92870
(referrals by City Police Depts)
Provides 100 beds for individuals located in North
Orange County. Services provided include health
resources, substance abuse services, job skill
services and housing navigation.
Salvation Army
Red Shield Youth/Family Center
1515 West North Street
Anaheim, 92801
(714) 687-9836
Provides food distribution, utility assistance,
transportation (bus tickets), clothing, household
items, other forms of assistance and community
referrals.
Sheepfold Women’s Services Center
Anaheim, CA
(714) 237-1444
The Service Center in Anaheim provides assistance
with legal obligations, medical and dental
appointments.
2021 - 2029 HOUSING ELEMENT II-17 HOUSING NEEDS ASSESSMENT C. HOUSING STOCK CHARACTERISTICS
This section identifies the characteristics of Yorba Linda’s physical housing stock. This includes an analysis of housing growth trends, housing conditions, housing prices and rents, and housing affordability.
1. Housing Growth
Table II-13 displays housing production in the City, compared to neighboring cities and the entire Orange County region. While Yorba Linda’s growth rate between 1990 and 2010 was in the double digits, growth during the last decade was at seven percent. This level of growth was the second highest among neighboring jurisdictions (Brea being the highest with 14%) and was similar to Orange County as a whole.
The State Department of Finance documents 23,795 housing units in Yorba Linda in 2020, a growth in nearly 1,500 units since 2010. Several additional residential projects are entitled and in various stages of development, including several large scale single-family detached and attached projects, a senior living community and 48-unit affordable senior apartment project.
Table II-13: Regional Housing Growth Trends 1990-2020
Jurisdiction 1990 2000 2010 2020
Percent Change
1990- 2000- 2010-
2000 2010 2020
Anaheim 93,177 99,719 104,237 110,745 7% 5% 6%
Brea 12,648 13,327 14,785 16,911 5% 11% 14%
Fullerton 42,956 44,771 47,869 49,764 4% 7% 4%
Placentia 13,733 15,356 16,872 17,184 12% 10% 2%
Yorba Linda 17,341 19,567 22,305 23,795 13% 14% 7%
Orange
County 875,072 969,484 1,046,118 1,111,421 11% 8% 6%
Source: U.S. Census 1990, 2000 and 2010; American Community Survey 2014-2018; Dept of Finance 2020 Population and Housing Estimates.
A vacancy rate of five percent for rental housing and two percent for ownership housing is generally considered healthy and suggests that there is a balance between the supply and demand of housing. As measured by the 2014-2018 American Community Survey, the residential vacancy rate in Yorba Linda was 5 percent for rental units, indicating a healthy market. Meanwhile, the vacancy rate for ownership units was 0.4 percent, highlighting a pentup demand for ownership housing.
2021 - 2029 HOUSING ELEMENT II-18 HOUSING NEEDS ASSESSMENT
2. Housing Type and Tenure
Table II-14 presents the mix of housing types in Yorba Linda. Of the City’s 23,795 housing units in 2020, 88 percent were single-family homes and 10 percent were multi-family units, unchanged since 2000. The City has had over 1,200 single-family units and almost 250 multifamily units constructed in the last decade. Yorba Linda also has one mobile home park for seniors (age 55+). Mobile home units comprise two percent of the City’s housing.
Table II-14: Housing Type 2000 – 2020
Unit Type 2000 2010 2020
Units Percent Units Percent Units Percent
Single-Family (SF) Detached 15,344 79% 17,523 78% 18,306 77% SF Attached 2,077 11% 2,152 10% 2,605 11%
Total SF 17,421 89% 19,675 88% 20,911 88%
2 to 4 Units 533 3% 744 3% 868 4%
5 or more units 1,270 7% 1,458 7% 1,581 7%
Total Multi-Family 1,803 9% 2,202 10% 2449 10%
Mobile Homes & Other 310 2% 428 2% 435 2%
Total Housing Units 19,534 100% 22,305 100% 23,795 100% Vacancy Rate 1.61% -- 3.27% -- 2.9% --
Source: U.S. Census 2000 and 2010. Dept of Finance 2020 Population and Housing Estimates.
Housing tenure refers to whether a housing unit is owned, rented or is vacant. Tenure is an important indicator of the housing climate of a community, reflecting the relative cost of housing opportunities, and the ability of residents to afford housing. Tenure also influences residential mobility, with owner units generally evidencing lower turnover rates than rental housing. In 2020, 84 percent of Yorba Linda’s households were homeowners, demonstrating stability since 2000 when 85 percent of the households were also owner-occupied (Table II15). Yorba Linda’s homeownership rate continues to be higher than the Countywide homeownership rate of 57 percent.
Table II-15: Housing Tenure 2000 - 2020
Occupied Housing
Units
2000 2020
Households Percent Households Percent
Renter 2,938 15% 3,695 16%
Owner 16,314 85% 19,399 84%
Total 19,252 100% 23,094 100%
Source: U.S. Census 2000; American Community Survey 2014-2018; Dept of Finance 2020 Population and Housing Estimates.
According to the SCAG housing data, among Yorba Linda’s 1,414 Extremely Low Income (ELI) households, 792 (or 56%) are renters while the remaining 622 (or 44%) are homeowners. This relatively high percentage of ELI homeowners is likely reflective of seniors who have lived in the community for many years, as well as occupants in the City’s mobile home parks, and senior citizens who are “house rich and cash poor”. With three-quarters of Yorba Linda’s ELI households spending greater than half their incomes on housing costs, housing overpayment is a significant issue among ELI renters and homeowners alike.
Housing Element programs to promote acceptance of Housing Choice Vouchers among
2021 - 2029 HOUSING ELEMENT II-19 HOUSING NEEDS ASSESSMENT landlords (Program 4) and to support affordable housing production (Program 5, 9, 10, 11) will help to address overpayment among ELI renter households. Supporting ELI homeowners in adding accessory dwelling units that can generate rental income (Program 12), as well as providing rehabilitation assistance (Program 1) can assistance homeowners spending a large portion of their incomes on housing costs.
3. Housing Age and Condition
The age of a community’s housing stock can provide an indicator of overall housing conditions. Typically housing over 30 years in age is likely to have rehabilitation needs that may include new plumbing, roof repairs, foundation work and other repairs. Table II-16 displays the age of Yorba Linda’s occupied housing stock by owner/renter tenure as of 2020.
As shown in the table below, three-fourths of Yorba Linda’s housing stock is 30 years or older in 2020 (built prior to 1989) and almost half is 40 years or older (built prior to 1979). Problems with property maintenance and housing deterioration have not been a significant issue thus far in Yorba Linda. High property values and a strong sense of neighborhood pride have contributed to well-maintained neighborhoods. Nonetheless, given the community’s aging housing stock, combined with a growing senior population who may face difficulties maintaining their homes, both code enforcement and housing rehabilitation programs are important and can be focused on older areas of the City.
Table II-16: Age of Housing Stock 2020
Year Structure
Built
Renter
Occupied
Housing
Percent
Renter
Owner
Occupied
Housing
Percent
Owner
Total
Percent
2014 or later 170 5% 427 2% 3%
2010-2013 92 3% 718 4% 4%
2000-2009 259 7% 1,630 8% 8%
1990-1999 499 13% 1,804 9% 10%
1980-1989 1,068 29% 5,432 28% 28%
1970-1979 517 14% 6,014 31% 28%
1960-1969 480 13% 2,658 14% 14%
1950-1959 347 9% 407 2% 3%
1940-1949 0 0% 136 <1% <1%
1939 or earlier 262 7% 175 <1% 2%
TOTAL 3,695 100% 19,399 100% 100%
Source: American Community Survey 2014-2018; Dept of Finance 2020 Population and Housing Estimates.
In terms of developing a general estimate of the number of units in need of rehabilitation in Yorba Linda, the City used the following approach. Using 30 years as the benchmark when residential structures begin requiring major systems replacement or repair, units built prior to 1989 can be considered as potential candidates for rehabilitation needs. Of Yorba Linda’s approximately 2,675 pre-1989 rental units, code enforcement staff estimate that 20 percent, or 535 units, may require some degree of rehabilitation over the Housing Element planning period. Among the City’s approximately 14,800 pre-1989 owner units, staff estimate that just five percent, or 741 units, may be in need of rehabilitation. No units have been identified as needing replacement.
2021 - 2029 HOUSING ELEMENT II-20 HOUSING NEEDS ASSESSMENT
4. Housing Costs and Affordability
Rental Housing Market
Current rental information (May - June 2020) for Yorba Linda was obtained from Internet rental listings on Craigslist, Westside Rentals, Zillow, Apartment Guide and The Bryant at Yorba Linda websites. Table II-17 presents the results of the rent survey by unit type, including apartments/ condominiums/townhomes and single-family homes.
A total of 53 non-duplicative multi-family units were advertised for rent in Yorba Linda, including 29 apartments and 24 units identified as townhomes or condominiums. Two- and three- bedroom units were the most common, with no studio units listed for rent. Median monthly rents raged from $1,940 for a one-bedroom unit, $2,320 for a two-bedroom unit, $3,055 for a three-bedroom unit and $3,550 for a four-bedroom unit.
During the same time period 28 single-family homes were listed for rent in Yorba Linda.
Median rents ranged from $2,650 for a two-bedroom home, $3,450 for a three-bedroom home, $3,755 for a four-bedroom home and $6,215 for a five-bedroom home.
Two accessory dwelling units (also known as granny flats, guest houses and in-law units) were for rent. The rents listed were $1,598 and $1,775.
Table II-17: Survey of Vacant Rental Units, May - June 2020 Unit Type and Bedrooms
# Units
Advertised Rental Range Median Rent
Apartments /Condominiums/Townhomes
1 9 $1,905 - $1,995 $1,940
2 19 $2,100 - $2,695 $2,320
3 17 $2,575 - $4,900 $3,055
4 8 $3,000 - $3,700 $3,550
Single-Family Homes
2 5 $2,295 - $2,700 $2,650
3 8 $2,000 – $3,650 $3,450
4 12 $2,785 - $6,000 $3,755
5 3 $5,500 - $6,900 $6,215
Source: www.craigslist.org, www.westsiderentals.com, www.zillow.com, www.apartmentguide.com, The Bryant at Yorba Linda website.
Accessory Dwelling Units
Accessory dwelling units (also known as second units or "granny" flats) are complete independent housing units that can be either detached or attached from an existing singlefamily residence. Based on their relatively small size, and because they do not require paying for land or major new infrastructure, accessory dwelling units ("ADUs") are considered affordable by design. ADUs can provide affordable housing options for family members, seniors, students, in-home health care providers, and other small household types. ADUs can also be useful to generate additional rental income for the homeowner, making homeownership more financially feasible.
2021 - 2029 HOUSING ELEMENT II-21 HOUSING NEEDS ASSESSMENT The State legislature has passed a series of bills aimed at encouraging single-family homeowners to add ADUs to their property by requiring local jurisdictions to adopt regulations to facilitate their production and streamline their approval. The State passed legislation in 2017 and again in 2019 to further assist and support the development of ADUs, including “by right” approval for units less than 850 square feet for a one-bedroom and 1,000 square feet for a two-bedroom unit. These projects must be approved at the staff level to help streamline the permit process.
In March 2020, the Yorba Linda City Council adopted an ordinance to update the Zoning Code to be consistent with changes in State law and to better facilitate the production of ADUs.
Highlights of the City’s current ADU regulations include:
• ADUs are permitted in all zoning districts that allow residential dwelling units; • Provisions for junior ADUs are now included in the Zoning Code; • Permitted unit sizes include 850 square feet for a studio and one-bedroom ADU; 1,000 square feet for an ADU with more than one bedroom. Units that exceed these sizes may be approved through the Planning Commission Design Review process; • All ADUs within the sizes outlined above shall maintain a minimum four (4) foot setback on the side and rear yards for an ADU not converted from an existing structure or a new structure constructed in the same location and to the same dimensions as an existing structure;
• One parking space per unit (unless criteria are met as outlined in the Zoning Code.
Between 2014-2020, the City issued building permits for 32 accessory dwelling units. The City’s website has directions on how to submit applications for ADU permits. A LEAP grant application was submitted by the City in 2020, with a portion of the funds proposed to be used for updated ADU forms, brochures and website changes to help inform property owners about ADU regulations and opportunities.
ADU Affordability
In December 2020, Southern California Association of Governments (SCAG) released a “Regional Accessory Dwelling Unit Affordability Analysis”. SCAG conducted this analysis to “provide local governments in the region with assumptions for ADU affordability that can be used to assign ADUs to income categories for the purpose of Sixth Cycle Housing Elements”8 The analysis consisted of five steps:
A. Calculate maximum rent limits for RHNA income categories for both one-person and two-person households by county;
B. Conduct a rent survey for ADUs in the SCAG region (a total of 150 existing ADUS were surveyed between April and June 2020);
C. Use regional survey to determine proportion of ADUs within each income category for both one-person and two-person households;
D. Make assumptions for what percentage of ADUs will be occupied by one-person and two-person households;
E. Use (D) to combine proportions from (C) into single breakdown of rented ADUs by income category.
8 Southern California Association of Governments, “SCAG Regional Accessory Dwelling Unit Affordability Analysis”, December 2020.
2021 - 2029 HOUSING ELEMENT II-22 HOUSING NEEDS ASSESSMENT The steps above apply to rented ADUs. However, one prevalent use of ADUs is for family members or others (such as caretakers) who are not charged rent. SCAG looked at other surveys and resources to determine the percentage of ADUs where people live rent free.
Based on this review, SCAG estimated that 15% of ADUs are provided rent-free, and can therefore be assume to affordable to extremely low income households (0-30% AMI).
In order to account for differences in housing costs, the SCAG geography was divided into five subregions, including Orange County. Table II-18 presents SCAG’s affordability assumptions for ADUs in Orange County, providing the basis for assigning affordability to projected ADUs in Yorba Linda’s Housing Element Update. As shown, almost 70 percent of all ADUs and 53 percent of rented ADUs in Orange County are estimated by SCAG to be affordable to lower income households.
Table II-18: Affordability Assumptions for All ADUs in Orange County Category
Affordability
Assumptions for
Rented ADUs1
85% of Total
Affordability
Assumptions for
Non-Rented ADUs2
15% of Total
Affordability
Assumption for
all ADUs3
100% of Total
Extremely Low Income 0% 100% 15%
Very Low Income 12% 0% 10%
Low Income 51% 0% 43%
Moderate Income 35% 0% 30%
Above Moderate Income 2% 0% 2%
Source: Southern California Association of Governments, “SCAG Regional Accessory Dwelling Unit Affordability Analysis”, December 2020.
1. Used step D in analysis to combine proportions from step C into single breakdown of rented ADUs by income category.
2. Based on SCAG research of non-rented ADUs, it was determined that 15% of ADUS will be available at rents affordable to Extremely Low Income households.
3. Combined by multiplying rented ADUs by 85% and non-rented ADUs by 15%.
Homeownership Market
The real estate website Zillow.com has developed a home valuation model to estimate the market value of individual properties, and compiles this information to produce a median “Home Value Index” for any given geographic area. Table II-19 presents the December 2019 median home value index for Yorba Linda and nearby communities, and shows the change in median home values from 2018.
The home value index for Yorba Linda (inclusive of both single-family homes and condominiums) was higher than neighboring jurisdictions and was over $90,000 to $160,000 more than the County as a whole. Homes in Yorba Linda evidenced appreciation of less than one percent in 2019. As shown in the table below, communities around Yorba Linda and the County as a whole experienced small increases in home values.
2021 - 2029 HOUSING ELEMENT II-23 HOUSING NEEDS ASSESSMENT Table II-19: Regional Median Home Values 2019
Community Zip
Code
December
2019 Median
Home Value
%
Change from
December 2018
Anaheim Hills
92807 $756,300 0.95%
92808 $776,700 0.90%
Brea
92821 $727,200 0.89%
92823 $836,400 0.50%
Fullerton 92831 $668,400 0.72%
92832 $593,800 2.26%
92833 $630,200 1.78%
92835 $821,600 0.56%
Placentia 92870 $718,800 1.41%
Yorba Linda 92886 $840,400 0.38%
92887 $911,200 0.34%
Orange County All Zip
Codes $749,500 1.11%
Source: Zillow Home Value Index from Zillow.com.
While the prior Table II-19 provides an overview of the subregional housing sales market, the following Table II-20 provides information on median home values by number of bedrooms in both Yorba Linda and Orange County as a whole. As shown, the Citywide median home value was $861,600, a modest 0.4% increase from the prior year, and 15 percent above the Countywide median of $749,500. In contrast, median home values of one- and two- bedroom homes in Yorba Linda were lower than the County as a whole, and reflect the City’s older, more modest housing stock.
Table II-20: Median Home Values in Yorba Linda 2019
Number of
Bedrooms
December 2018
Value
December 2019
Value % Change Orange County
1 $283,700 $284,400 0.2% $368,100
2 $447,800 $450,700 0.6% $525,000
3 $730,700 $737,100 0.9% $704,200
4 $922,800 $925,200 0.3% $860,200
5+ $1,347,100 $1,341,800 -0.4% $1,161,200
Total $858,100 $861,600 0.4% $749,500
Source: Zillow Home Value Index from Zillow.com.
2021 - 2029 HOUSING ELEMENT II-24 HOUSING NEEDS ASSESSMENT Another important data set is the sale listing prices for homes. In December 2019, Yorba Linda’s median list price was $397 per square foot, while the list price in Orange County was $439 per square foot. In June 2020, 132 homes and 33 condos/townhomes were listed for sale in Yorba Linda on Zillow listing services. The price ranges are included below. Over half (53%) of the homes listed had five or more bedrooms, while only two of the listings were for two-bedroom homes.
• Single-family home listings
o 132 homes total
o Two bedroom homes were listed at $699,900 and $730,000 o Three bedroom homes ranged from $755,000 to over one million dollars o Four bedroom homes started at $618,000 and went to the $1,000,000 and $2,000,000 range
o Homes with five or more bedrooms started at $974,900 and went into the $3,000,000 range
o Several of the larger homes were part of the new Enclave at Yorba Linda development
• Townhome listings
o 16 townhomes
o Two bedrooms ranged from $624,990 to $679,990
o Three bedrooms ranged from $494,900 to $739,990 (One listing was for over one million dollars)
o Four bedrooms ranged from $589,000 to $920,000
• Condominium listings
o 17 condos
o Two bedrooms ranged from $410,000 to $610,000
o Three bedrooms ranged from $430,000 to $829,000
o Four+ bedrooms ranged from $569,000 to $780,000
2021 - 2029 HOUSING ELEMENT II-25 HOUSING NEEDS ASSESSMENT Housing Affordability
The affordability of housing in Yorba Linda can be assessed by comparing market rents and sales prices with the amount that households of different income levels can afford to pay for housing. Compared together, this information can reveal who can afford what size and type of housing as well as indicate the type of households that would most likely experience overcrowding or overpayment.
For purposes of evaluating home purchase affordability, Table II-21 presents the maximum affordable purchase price for moderate income households (120% AMI), and compares this with the 2019 median home values in Yorba Linda as previously documented in Table II-20.
As illustrated below, the maximum affordable purchase price ranges from $458,538 for a three person household to $502,265 for a four person household. While the median priced threebedroom home value is beyond the reach of households earning moderate incomes, the median priced two-bedroom home ($450,700) falls just within moderate income affordability ($458,538). Two bedroom homes reflect Yorba Linda’s older housing stock, whereas newer units are more typically three or more bedrooms.
Table II-21: 2020 Orange County Maximum Affordable Housing Cost Moderate Income
Affordable Housing Cost
2 Bedroom
(3 persons)
3 Bedroom
(4 persons)
Household Income @ 120% Median1 $101,970 $113,300
Income Towards Housing @ 35% Income $35,690 $39,655
Less Ongoing Monthly Expenses:
Annual Utilities Allowance2 $2,052 $2,712
HOA, Insurance & Maintenance $3,960 $4,080
Taxes (1.1% affordable housing price) $4,990 $5,524
Income Available for Mortgage $24,688 $27,339
Supportable 30 yr Mortgage @ 4.0% interest $430,861 $477,152 Homebuyer Downpayment (5% affordable housing price) $22,677 $25,113 Maximum Affordable Purchase Price $458,538 $502,265
Yorba Linda Median Home Value $450,700 $737,100
Source: Karen Warner Associates, Inc.
1 Based on 2020 household incomes published by HCD. Affordable sales price calculations are based on California Health and Safety Code Section 50052.5 methodology. 2 Utilities allowance based on Orange County utility allowance schedule effective as of 10/1/19.
Assumes costs for gas heating, cooking and water heating; basic electric; water; sewer; and trash services.
Table II-22 presents the maximum affordable rents for very low, low and moderate-income households by household size, and compares with median apartment rents in Yorba Linda (as documented previously in Table II-17). As the table below indicates, Citywide median rents are above the level of affordability for very low and low income households, with the affordability gap increasing with unit size. Median rents for one and two bedroom units are within the level affordable to moderate income households, though the rent premium for three bedroom units exceeds the moderate income affordability threshold.
2021 - 2029 HOUSING ELEMENT II-26 HOUSING NEEDS ASSESSMENT Table II-22: 2020 Maximum Affordable Rents, Orange County Income Level
Maximum Affordable Rent After Utilities Allowance*
1 Bedroom
(2 person)
2 Bedroom
(3 person)
3 Bedroom
(4 person)
Very Low Income $1,162 $1,271 $1,380
Low Income $1,928 $2,136 $2,340
Moderate Income $2,354 $2,611 $2,869
Yorba Linda Average
Apartment Rents $1,940 $2,320 $3,055
Source: Karen Warner Associates
*For comparability with advertised rentals, affordable rent calculations subtract the following utility expenses based on the Orange County Housing Authority allowance: $119 for 1 bedroom, $170 for 2 bedrooms, and $221 for 3 bedrooms.
Between 2014 and 2019, the City provided financial and regulatory assistance for the following affordable housing developments:
• Oakcrest Terrace - 54 VLI, 14 LI rental units for local workforce residents, seniors, veterans and families
• Oakcrest Heights - 45 VLI, 8 LI rental units, including units designated for emancipated foster youth
• Altrudy I – 10 ELI, 1 VLI, 36 LI rental units
• Melia – 192 total ownership units, 6 Mod Income
Oakcrest Heights
2021 - 2029 HOUSING ELEMENT II-27 HOUSING NEEDS ASSESSMENT
5. Assisted Housing At-Risk of Conversion
State Housing Element law requires an analysis of the potential for currently rent-restricted low income housing units to convert to market rate housing, and to propose programs to preserve or replace any units “at-risk” of conversion. This section presents an inventory of all assisted rental housing in Yorba Linda, and evaluates those units at risk of conversion during the ten year 2021-2031 planning period.
Assisted Housing Inventory
Yorba Linda has an active history of supporting
affordable housing in its community. As
illustrated in Table II-23, the City and its former
Redevelopment Agency have facilitated the
development or acquisition/rehabilitation of
nine multi-family residential developments,
totaling 656 lower income affordable rental
units. This inventory includes all multi-family
units assisted under federal, state, and local
programs, including HUD, state/local bond
programs, density bonus, inclusionary, and
local redevelopment or direct assistance
programs. All of the City’s affordable rental
projects have long-term affordability restrictions and none are at-risk of conversion to market rate over the next ten years.
Table II-23: Assisted Rental Housing Inventory
Project Name
Tenant
Type
Total
Units
Affordable
Units
Applicable
Programs
Potential
Conversion
Date
Altrudy I Senior 48 47 Land Write Down;
Tax Credits 2073
Oakcrest Terrace Family 69 68 RDA Set-Aside;
Tax Credits 2068
Oakcrest Heights Family 54 53 RDA Set-Aside;
Tax Credits 2070
Villa Plumosa Family 76 75 RDA Set-Aside;
Tax Credits 2062
Vintage at
Stonehaven Senior 125 124 RDA Set-Aside 2067
Arbor Villas Family 67 66 RDA Set-Aside 2052
Parkwood Senior 100 100 RDA Set-Aside 2059
Yorba Linda Palms Family 44 43
Density Bonus;
RDA Set-Aside;
Tax Credits
2060
Source: City of Yorba Linda, 2021.
Villa Plumosa
2021 - 2029 HOUSING ELEMENT II-28 HOUSING NEEDS ASSESSMENT In addition to the above projects, the prior Yorba
Linda Redevelopment Agency purchased 26 units
at the 52 unit Evergreen Villas senior
condominium complex that it rented to low income
(<50% AMI) seniors at affordable rents. In
December 2009, Yorba Linda transferred its
ownership in these units to a non-profit purchaser
(Orange Housing Development Corporation –
OHDC). The former Redevelopment Agency
entered into an Affordable Housing Agreement
with OHDC to acquire additional condominium
units in complexes with high rates of foreclosure
and/or economic blight. Between 2011-2017, a
total of 40 additional condominium units were
purchased by OHDC and provided as long-term affordable rentals units to extremely low, very low and low income households at affordable rents for a minimum of 55 years.
The Bryant (previously Archstone Yorba Linda and Riverbend Apartments) is required under its December 1999 County bond covenant to make available 80 units to lower income households. The property has been sold multiple times since issuance of the County bond, and the City’s research on the project indicates that while the 80 units continue to be income restricted, there are no rent restrictions on these units, and thus they are considered market rate.
Evergreen Villas
Altrudy 1 Senior Housing
2021 - 2029 HOUSING ELEMENT II-29 HOUSING NEEDS ASSESSMENT
6. Housing Problems
A continuing priority of communities is enhancing or maintaining the quality of life for residents.
A key measure of the quality of life in Yorba Linda is the extent of “housing problems”. One measure of housing problems used by both the State and Federal governments is the extent of housing overpayment and overcrowding within a community.
Overpayment
Housing overpayment, as defined by the State and Federal government, refers to spending more than 30 percent of income on housing; severe overpayment is spending greater than 50 percent of income. Table II-24 shows the incidence of overpayment in Yorba Linda.
Table II-24: Housing Overpayment 2018
Overpayment Households Percent
Orange Co.
%
Owners
Overpayment (>30% income on housing) 5,064 36% 40%
Renters
Overpayment (30%-50% income on housing) 1,303 35% 27%
Severe Overpayment (>50% income on housing) 1,010 27% 28% Source: SCAG Pre-Certified Housing Data, August 2020.
Household count differs from 2020 Dept of Finance count depicted in Table II-6.
The 2014-2018 American Community Survey data compiled by SCAG identifies 35 percent of renters in Yorba Linda spending between 30 and 50 percent of their total income on housing.
This level of overpayment is higher than the County as a whole, which was measured at 27 percent in 2018. Severe overpayment in Yorba Linda among renters is measured at 27 percent, a slight decrease from 29 percent in 2010. Among the City’s owner households, 36 percent were overpaying in 2018, which is a decrease from 39 percent in 2010 and is lower than the 40 percent measured for the County as a whole.
Among lower income households (<80% AMI), overpayment is most pronounced. As shown in Table II-25, almost all renter households earning less than $20,000 a year face either overpayment (8%) or severe overpayment (87%). As anticipated, as a household’s income increases, the level of overpayment declines; however, it is still an issue for many households earning less than $100,000 annually. The impact of housing overpayment on Yorba Linda’s lower income households is significant, with the community’s special needs populations – seniors, persons with disabilities, and female-headed households with children - most vulnerable to losing their housing due to an inability to pay. The high incidence of renter overpayment represents a significant housing need in Yorba Linda, and is addressed through Housing Element programs for Multifamily Acquisition and Improvement, Section 8 Rental Assistance, Affordable Housing Development Assistance, Accessory Dwelling Units (Program # 9) and Affordable Housing Density Bonus.
2021 - 2029 HOUSING ELEMENT II-30 HOUSING NEEDS ASSESSMENT Table II-25: Lower Income Renter Overpayment 2018
Income Level
Overpayment
(30-50% income on housing)
Severe Overpayment
(>50% income on housing)
Households
% of renter
income category Households
% of renter
income category
Less than $20,000 28 8% 297 87%
$20,000-$34,999 100 18% 376 69%
$35,000 to $49,999 332 61% 114 21%
$50,000 to $74,999 323 49% 90 14%
$75,000 to $99,999 272 43% 133 21%
$100,000 or more 248 24% 0 0%
Source: SCAG Pre-Certified Housing Data, August 2020.
Household count differs from 2020 Dept of Finance count depicted in Table II-6.
As can be seen from Table II-26 below, owner overpayment is most pronounced among lower income households as well. For homeowners earning less than $75,000, overpayment is anywhere from 85 percent to 100 percent among these households. Programs to assist homeowners in adding an accessory dwelling unit to their properties can help to provide added rental income, and housing rehabilitation grants can assist lower income homeowners with insufficient discretionary incomes to maintain their homes.
Table II-26: Lower Income Owner Overpayment 2018
Income Level
Overpayment
(>30% income on housing)
Households
% of owner
income category
Less than $20,000 229 100%
$20,000-$34,999 319 100%
$35,000 to $49,999 505 98%
$50,000 to $74,999 841 85%
$75,000 or more 3,170 26%
Source: SCAG Pre-Certified Local Housing Data, August 2020.
2021 - 2029 HOUSING ELEMENT II-31 HOUSING NEEDS ASSESSMENT Overcrowding
The State defines an overcrowded housing unit as one occupied by more than 1.01 persons per room (excluding kitchens, porches, and hallways). A unit with more than 1.51 occupants per room is considered severely overcrowded. The incidence of overcrowded housing is a general measure of whether there is an available supply of adequately sized housing units.
Table II-27 shows the incidence of overcrowding in Yorba Linda and Orange County by tenure, as measured by the 2014-2018 American Community Survey compiled by SCAG. As indicated, the City’s renters experienced more overcrowding conditions than owners (7% for renters versus 1% for owners). While renter overcrowding has increased since 2010, when it was measured at 4 percent for these households, the percentage is still lower than the County as a whole (10%). Overall, household overcrowding remains a relatively minor issue in Yorba Linda.
Table II-27: Overcrowded Households 2018
Overcrowding Households Percent
Orange
Co. %
Owners
Overcrowding (>1.0 ppl/room) 131 1% 3%
Severe Overcrowding (>1.5ppl/room) 42 <1% 1%
Renters
Overcrowding (>1.0 ppl/room) 289 7% 10%
Severe Overcrowding (>1.5ppl/room) 47 1% 6%
Source: SCAG Pre-Certified Housing Data, August 2020; American Community Survey 2014-2018.
Household count differs from 2020 Dept of Finance count depicted in Table II-6.
2021 - 2029 HOUSING ELEMENT II-32 HOUSING NEEDS ASSESSMENT D. REGIONAL HOUSING NEEDS ALLOCATION
The Regional Housing Allocation (RHNA) is a state-mandated process, which determines the amount of future housing growth each city and county must plan for in their housing elements.
This “fair share” allocation concept seeks to ensure that each jurisdiction accepts responsibility for the housing needs of not only its resident population, but also for the jurisdiction’s projected share of regional housing growth across all income categories.
Regional growth needs are defined as the number of units that would have to be added in each jurisdiction to accommodate the forecasted number of households, as well as the number of units that need to be added to compensate for anticipated demolitions and changes to achieve an “ideal” vacancy rate.
The RHNA process begins with the California Department of Housing and Community Development’s (HCD) projection of future statewide housing growth need, and the apportionment of this need to regional councils of government throughout the state. As southern California’s designated Council of Government, the Southern California Association of Governments (SCAG) is the agency responsible for developing an allocation methodology to allocate the region’s assigned share of statewide need to cities and counties by income level. The main determining factors in SCAG’s methodology are: household growth (based on Connect SoCal growth forecast), job accessibility, and transit accessibility. After a RHNA total is calculated, a social equity adjustment is applied to determine the four income categories (very low, low, moderate and above-moderate incomes).
The State has allocated 1.34 million new housing units to the SCAG region as part of the 6th cycle RHNA. This level of housing growth represents the largest allocation the region has ever received, resulting in much higher RHNA allocations for SCAG cities and counties. Despite great efforts to appeal the City’s RHNA allocation and methodology, Yorba Linda’s appeal was denied by SCAG’s RHNA Appeals Board. In fact, of the 52 appeals filed, only two appeals were approved, with all appeals by Orange County cities being denied. On March 4, 2021, SCAG’s Regional Council adopted the final RHNA allocation, resulting in a final RHNA of 2,415 housing units for the City of Yorba Linda broken down into the following income categories:
Table II-28: Regional Housing Needs Assessment (RHNA) 2021-2029 Income Level
Percent of Area
Median Income Units Percent
Very Low* 0-50% 765 32%
Low 51-80% 451 19%
Moderate 81-120% 457 19%
Above Moderate 120%+ 742 30%
Total 2,415 100%
Source: Southern California Association of Governments (SCAG) 6th Cycle RHNA. * Local jurisdictions must consider Extremely Low income households as part of the Very Low income allocation. The Yorba Linda Housing Element assumes 50% of City’s Very Low income housing needs are for Extremely Low income households (382 units) earning less than 30% AMI.
2021 - 2029 HOUSING ELEMENT II-33 HOUSING NEEDS ASSESSMENT The RHNA represents the minimum number of housing units each community is required to provide “adequate sites” for through zoning and is one of the primary threshold criteria necessary to achieve State approval of the Housing Element. As the RHNA represents a planning target for new residential growth and not a building quota, so long as a jurisdiction provides sufficient sites and does not impose constraints to development, it is not penalized for falling short of its RHNA target. Yorba Linda will continue to provide sites for a mix of singlefamily, multi-family and mixed-use housing, supported by a variety of programs to enhance affordability, to accommodate its RHNA and contribute towards addressing the growing demand for housing in the southern California region.
2021-2029 HOUSING ELEMENT III-1 HOUSING CONSTRAINTS
III. HOUSING CONSTRAINTS
This section assesses the various governmental, market, infrastructure and environmental factors that may serve as a potential constraint to housing development in Yorba Linda.
A. GOVERNMENTAL CONSTRAINTS
As a means of providing information and transparency to the public, all zoning and development standards and development fees are posted on the City’s website.
1. Land Use Controls
The Yorba Linda General Plan was adopted on November 1, 2016 by the Yorba Linda City Council. The Plan’s Land Use Element provides for the following residential land use designations:
Residential – Low (1.0 du/ac) – Designated for the steep terrain along the northerly boundary of Yorba Linda as well as the historical “agricultural” areas that are centrally located within the planning area. Average density is 1 unit per acre, with clustering permitted at greater intensities to compensate for topographical constraints.
Residential - Medium Low (1.8 du/ac) – Intended for spacious single-family homes. Lot sizes typically range from one-third to half an acre per dwelling unit. This category has been allocated in some cases to respond to terrain with topographical constraints.
Maximum density is 1.8 dwelling units per acre.
Residential - Medium (3.0 du/ac) – Designated for single-family detached residential subdivisions, or more innovative subdivision planning allowing clustered development in conjunction with provision of recreational facilities and preservation of open spaces.
Average density is 3.0 dwelling units per acre.
Residential - Medium High (4.0 du/ac) – This category reflects conditions which include acreage of limited size for development and property with locational restrictions.
Maximum density is 4.0 dwelling units per acre, with a minimum lot size of 7,500 square feet.
Residential - High (4 – 30 du/ac) – Permits a variety of housing ranging from single-family detached homes to attached products and apartments. The appropriate housing type is predicated based on the site, location, and adjacent land uses. Clustering of buildings allows for the provision of appropriate private recreational and open space amenities.
High density designations have been advantageously located throughout the planning area for proximity to retail, commercial, and employment opportunities, as well as providing a rational land use transition between lower density residential areas and nonresidential land uses.
2021-2029 HOUSING ELEMENT III-2 HOUSING CONSTRAINTS
Table III-1 illustrates Yorba Linda’s residential General Plan Designations, corresponding Zoning and acreage per land use category (as of 2016).
Table III-1: Residential General Plan and Zoning Designations Land Use Designation Density Corresponding
Zoning Districts
Acres
Residential – Low (R-L) 1.0 du/acre R-A, RLD 412.14
Residential – Medium Low (R-ML) 1.8 du/acre R-E 2,356.05 Residential – Medium (R-M) 3.0 du/acre R-S 1,956.28
Residential – Medium High (R-MH) 4.0 du/acre R-U 1,169.01 Residential – High (R-H) 4 – 30 du/acre R-M, R-M-20, R-M-30 545.89 Source: 2016 Yorba Linda General Plan, City of Yorba Linda Zoning Code, 2020.
Table III-2 summarizes Yorba Linda’s residential development standards. The development standards for the R-M, R-M-20 and R-M-30 multi-family zone districts were established during Yorba Linda’s 4th cycle Housing Element in conjunction with an urban design professional to ensure their cumulative impact did not constrain the ability to achieve maximum zoned densities. The design consultant prepared residential site plans utilizing sets of development standards which achieved the maximum 10, 20 and 30 units/acre of the City’s multi-family zone districts. Projects built under the 10 and 20 unit/acre standards provided further evidence that maximum densities could be achieved. The Meta Housing apartment project developed under the City’s prior AH (Affordable Housing) combining zone which became the SH zone with standards allowing a density of 20 units per acre. The Presidential Walk project built as a single-family detached product under the R-M standards has a density of 9 units per acre. For the 30 unit per acre concept plan, the urban design consultant selected one of the proposed housing sites in Savi Ranch, and refined the initial RM-30 standards as necessary to achieve the desired density. The results of this “density testing” served as the basis for development of the City’s new multi-family development standards, presented in Table III-2.
Additional site testing of the City’s existing R-M standards resulted in an increase in lot coverage (from 35% to 45%) and a decrease in the minimum parcel size (from 2 acres to 7,500 square feet) in the R-M zone. As a means of encouraging consolidation of smaller parcels into larger development sites, the R-M-20 and R-M-30 zones require a one-acre minimum lot size. This lot size minimum has not served as a constraint to development, as evidenced by the successful development of all seven R-M-20 and R-M-30 sites identified in the 5th cycle Housing Element. The City will allow an applicant to propose a smaller lot size on Housing Element Sites to be considered through the Design Review process.
The City’s multi-family parking standards had previously required two covered spaces plus one covered or uncovered space per studio – two bedroom unit, with units with three or more bedrooms requiring two covered spaces plus one and one-half covered or uncovered spaces.
By not reducing parking requirements for smaller units, these parking standards can effectively serve as a disincentive for the development of smaller, lower cost units. In creating development standards for the new R-M-20 and R-M-30 zone districts, the City lowered its parking requirements based on the size of the unit, as shown in Table III-2. In addition, as described below, developments within the Affordable Housing Overlay (as well as the Congregational Land Overlay and Mixed Use Overlay) providing the required 20 percent lower income units are eligible for further parking reductions under state density bonus law.
2021-2029 HOUSING ELEMENT III-3 HOUSING CONSTRAINTS
The new Affordable Housing Overlay (AHO) being developed by the City will provide modified development standards in exchange for the provision of 20% affordable units in developments (refer to Housing Element Program #9). While the AHO is in the process of being developed, it is proposed to include the following standards:
• Increased densities (to 35 units/acre, with additional density under State density bonus law)
• Increased height limits (3 stories, with 4 stories permitted on PD zoned sites with an AHO)
• Increased floor area ratios
• Reduced project-specific open space standards
• Ministerial review
• Potential for reduced lot sizes (subject to Design Review) As an additional incentive, developers can access state density bonus law in addition to using the densities allowed in the Overlay, including the state's alternative parking standards of 1 space for 0-1 bedroom units, 2 spaces for 2-3 bedroom units, and 2.5 spaces for four or more bedrooms. In order to encourage lot consolidation for sites with multiple parcels, the City will structure the Overlay with tiered incentives for larger lot sizes.
The City has Multi-Family Design Guidelines to provide upfront direction to the development community regarding the desired quality and character of multi-family development. Yorba Linda has established a review process, development standards and design guidelines which facilitate, and do not serve to constrain, quality multi-family housing.
2021-2029 HOUSING ELEMENT III-4 HOUSING CONSTRAINTS
Table III-2: Residential Development Standards
R-A RLD R-E R-S R-U R-M
R-M20R-M30
Max. Density
(du/ac) 1.0 1.0 1.8 3.0 4.0 10.0 20.0 30.0
Min. Parcel
Size (sq.ft.)
1 acre
39,000 15,000 10,000 7,500 7,500 1 acre
Min. Lot Width
(ft.) 130 110 100 80 75
100
(corner);
125
(interior)
135 (corner);
165 (interior)
Min Setbacks (ft.)
Front 40 35 30 25 20 20 20 20
Side 10% lot width; min 10 ft 10 Min 5 ft each side; min total of 20 ft Street Side 10% lot width; min 10 ft 10 10 10 10 10
Rear 45 40 25 25 25 20 20 20
Max. Height
(ft.)
35 ft, or 2 stories, whichever is less
35’ or 2
stories
+ ½
story
for
undgrd
parking
50’ or 4
stories
+ ½
story
for
undgrd
parking
Min. Unit Size
(sq. ft.) 1,500 1,300
Studio 750;
1 bd 900;
2 bd 1,000;
3 bd 1,200
Studio 550;
1 bd 675;
2 bd 700;
3 bd 900
Max. % Lot
Coverage 35% 40% 45% 65% 70%
Minimum %
Landscaped
Open Area
N/A 50% of building site area
Private Open
Space N/A 50 sq.ft. per unit. 100 sq.ft. for ground floor units.
Parking Standards
Single Family 2 covered spaces per dwelling unit + 1 covered or uncovered guest space Multi-family:
R-M
Studio – 2 bd = 2 covered + 1 covered or uncovered, 3+ bd = 2 covered + 1.5 covered or uncovered
Multi-family:
R-M-20 & R-M-30
Studio = 1 covered, 1 bd = 1 covered + 0.8 uncovered, 2+ bd = 1 covered + 1 uncovered
Guest parking: Studio = .75 per unit, 1 and 2 bd = 0.5 per unit, 3+ bd = 1.5 per unit
Senior Housing As required by conditional use permit.
Source: City of Yorba Linda Zoning Code, 2020.
2021-2029 HOUSING ELEMENT III-5 HOUSING CONSTRAINTS
Special Housing (SH) Combining Zone
The SH Combing Zone provides flexible development standards designed to facilitate senior housing and functions as an overlay to the underlying zone district. Proposed housing projects must contain at least 50 percent of the units for senior citizens (a person 62 years of age or older, or 55 years of age or older in a “senior citizen housing development”). Projects proposed in this zone are subject to a conditional use permit unless classified as affordable units, in which case, the project shall be subject to design review. Table III-3 outlines the development standards for senior housing in this combining zone.
Table III-3: SH Combining Zone Development Standards
Standard
Minimum site area 2 acres
Minimum lot size None
Minimum front yard setback 20 feet
Minimum side yard setback, interior 10 feet
Minimum side yard setback, street 20 feet
Minimum rear yard setback 20 feet
Minimum space between buildings 10 feet
Maximum building height* 35 feet
Maximum density 25 units/net acre
Maximum site coverage 60%
Minimum dwelling unit size Floor area to be determined by CUP Minimum parking spaces per unit As required by CUP
Occupancy Senior citizen or handicapped; at least
one occupant is 62 years or older.
Source: City of Yorba Linda Zoning Code Table 18.18-1.
*Or as otherwise approved by the Planning Commission in conjunction with a conditional use permit or design review.
Provisions of the SH Combining Zone include:
• Densities shall not be more than allowed by the General Plan, except as may be provided through the granting of SH incentives. “Density averaging” may be used on a project-wide basis so as to permit higher density levels in certain project portions in exchange for advantageous project design features.
• Building height may be increased by one-half story to accommodate parking partially constructed underground.
• All public streets within or abutting the development shall be dedicated and improved to City specifications.
• Project design shall promote privacy, security, and use of passive solar heating and cooling, through placement of walls, windows, and landscaping.
The following additional development incentives may also be offered to eligible projects:
2021-2029 HOUSING ELEMENT III-6 HOUSING CONSTRAINTS
• Density bonus increase of up to 100% of the existing maximum density, and, if necessary, modification of development and zoning standards which would otherwise inhibit use of the density bonus on the specific site;
• Fast track processing of development plans;
• Waiver of City fees, including but not limited to City-imposed development submittal and processing fees;
• Additional liberalization of development standards;
• Approval of mixed-use zoning; and/or
• Combination of above incentives or other valid proposals from developer or City.
Planned Development (PD) Zone
The Yorba Linda Zoning Code includes a Planned Development (PD) Zone (Chapter 18.16, Article II) to facilitate large scale community planning on parcels two acres in size and larger.
The purpose of the PD zone is to:
• Provide for development of parcels as coordinated, comprehensive projects • Provide for a zone encompassing various types of land uses, such as single-family residential, multi-family housing, office areas, commercial centers, industrial parks or any public or semipublic use or combination of uses
• Facilitate development of infill areas by permitting greater flexibility, and consequently, more creative and imaginative designs
• Promote more economical and efficient use of the land while providing a variety of housing choices, a higher level of urban amenities and preservation of natural and scenic qualities of open spaces
The PD zone provides for clustered, higher density developments above the density ceilings on portions of the property, provided that the overall average density is within the maximum established under the General Plan. Prior to submitting an application for a PD zone, the City encourages applicants to hold preliminary consultations with staff to obtain information and guidance before incurring expense in the preparation of plans, surveys, and other data. A development plan for the property is required to be submitted along with the application for PD zoning, and is subject to City Council approval.
Mobile Home Park (MHP) Zone
The Yorba Linda Zoning Code establishes a Mobile Home Park (MHP) Zone in Chapter 18.16, Article I, intended for the exclusive development of mobile home parks. The Planning Commission reviews and approves the design review of a proposed mobile home park development. The general development standards are shown in Table III-4 below.
2021-2029 HOUSING ELEMENT III-7 HOUSING CONSTRAINTS
Table III-4: Mobile Home Park Zone Development Standards Standard
Minimum site area 20 acres
Minimum street frontage 250 feet
Minimum unit space area 3,500 square feet
Setback – adjoining a street 20 feet
Setback – interior lot line 15 feet
Maximum height 35 feet
Recreation area 150 sq ft/unit
200 sq ft/unit for family parks
Source: City of Yorba Linda Zoning Code Table 18.16-1.
Local Ordinances
State law now requires jurisdictions to analyze in their Housing Elements any locally adopted ordinances that directly impact the cost and supply of residential development. The City of Yorba Linda has ordinances which provide for density bonuses, regulate condominium conversions and prohibit short term rentals. The City also has a voter-approved initiative that requires citywide elections for the approval of certain major amendments to the City’s Planning Policy Documents. Each of these provisions are analyzed in the following section.
Affordable Housing Density Bonus: Numerous amendments have been made to State density bonus law over the last several years. The recent changes to density bonus law deal primarily with reduced parking ratios and exemptions (for sites near transit), requirements for replacement housing, adoption of streamlined processing procedures, bonuses for special needs populations, and other changes designed to facilitate the use of density bonus incentives. Yorba Linda’s Zoning Code Chapter 18.19, most recently amended in 2019, sets forth the City’s density bonus incentives consistent with Government Code Sections 65915 through 65918. In summary, applicants of residential projects of five or more units may apply for a density bonus and additional incentive(s) if the project provides for one of the following:
a. At least five percent (5%) of the total units are dedicated to very low income households; or
b. At least ten percent (10%) of the total units are dedicated to low-income or very low income households; or
c. At least ten percent (10%) of the total dwelling units are dedicated to moderateincome households, are located in a common interest development (condominium), and are available to the general public for sale; or
d. At least 35 dwelling units are available exclusively to persons aged 55 and older and to those residing in them.
The amount of density bonus to which the applicant is entitled varies according to the amount by which the percentage of affordable housing units exceeds the minimum percentage
2021-2029 HOUSING ELEMENT III-8 HOUSING CONSTRAINTS
established in this section, but generally ranges from 20-35% above the specified General Plan density. In addition to the density bonus, eligible projects may receive 1 to 3 additional development incentives, depending on the proportion of affordable units and level of income targeting. The incentives offered include:
a. A reduction in site development standards (e.g., setback and lot size requirements, increased building height, reduction in parking for projects housing seniors and/or disabled persons) or architectural design requirements.
b. Approval of mixed-use zoning in conjunction with the housing project if nonresidential land uses reduce individual unit costs, and the nonresidential land uses are compatible with the housing project and adjoining development. c. Other regulatory incentives or concessions (such as fact track processing of plans, deferred development impact fees) proposed by the permit applicant or the City that would result in identifiable cost reductions.
In addition to these incentives, at the request of the developer, the City will permit a parking ratio (inclusive of handicapped and guest parking) of 1 space for 0-1 bedroom units, 2 spaces for 2-3 bedroom units, and 2½ spaces for four or more bedrooms. The City did not receive any density bonus requests during the prior planning period.
Several pieces of legislation have taken effect since Yorba Linda last updated its density bonus ordinance in 2019, including 50% to 80% bonuses for projects meeting increased affordability requirements. The Housing Element includes a program to update the City’s density bonus ordinance consistent with current state statutes.
Condominium Conversions: As a means of maintaining the supply of rental units and preserving the affordable housing stock, the City requires the approval of the Planning Commission for any condominium conversion. Standards for existing buildings proposed to be converted are outlined in the City’s Zoning Code. The City has not received any condominium conversion requests.
Short term Rentals: A short-term vacation rental (also called a vacation rental or STR) is a rental of a residential dwelling unit or accessory building for periods of less than 30 consecutive days. Over the past few years, short-term rentals have become an increasingly popular form of lodging throughout the country. A study conducted in early 2018 identified 89 short-term rentals in Yorba Linda, of which 40% were entire homes or apartments and the remainder were single bedrooms or guest quarters.
The City recognizes the potential land use issues that can arise from operating short-term rentals in Yorba Linda’s neighborhoods, such as parking, noise and trash. In addition, housing units that might otherwise provide long term rental housing for tenants are removed from the rental market, further impacting the shortage of available rental housing in the community.
Due to these factors, in 2019, the City Council adopted Chapter 5.50.030 of the Yorba Linda Municipal Code, prohibiting short-term rentals in Yorba Linda.
Measure B (Yorba Linda Right-To-Vote Amendment): Measure B is a citizen sponsored, voter-approved initiative, incorporated within Yorba Linda’s Municipal Code. This measure
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was in large part a reaction to the potential development contemplated in the Town Center/Downtown redevelopment project area. By way of background, in 2003 the City Council adopted the Downtown Master Plan which focused on Main Street revitalization and was widely supported by the community. The City Council subsequently entered into an exclusive negotiating agreement with a developer to implement the Master Plan and develop the downtown area with added commercial space and housing. With the City’s adoption of the Town Center Planned Development Zoning Regulations in December 2005, community opposition mounted as residents didn’t feel the City Council was transparent in permitting 501 housing units and 560,000 square feet of commercial space in the Town Center, along with the Council’s last minute inclusion of a new planning area (Yorba Station) that hadn’t been vetted with the community or the center owners or merchants. Due to the community’s reaction and under threat of referendum, the City Council subsequently rescinded their approval of the Zoning Regulations and dismissed the developers in February 2006. The same citizens group that opposed the Town Center later formulated Measure B, which was passed by the electorate in June 2006.
Measure B requires a majority vote of the electorate for major amendments to “planning policy documents” that increase residential density above the currently allowed density. These planning policy documents include: General Plan Land Use Element; Land Use Policy Map; Zoning Code; Zoning Map; Specific Plan; or Development Agreement.
Major amendments to these planning policy documents are defined to include any of the following changes to the development standards which:
• Increase the number of residential units which may be constructed on a parcel designated for residential uses
• Increase the number of separate parcels which may be created from an existing parcel
• Changes any residential land use to allow any other land use • Changes any non-residential land use to allow any residential land use greater than ten (10) net dwelling units per acre or allow mixed-use • Increases the allowed maximum height of development
• Provides for the private development of land owned by a government entity within five years of the date of the approval to develop the land • Repeals any of the Planning Policy Documents
Measure B also establishes a maximum height of 35 feet for all structures in the City.
Exempted from the height limit are church steeples, public schools, and other structures exempted by state or federal law.
If there is ever a conflict between Measure B and State law, such that Measure B is preempted, the City would apply State law. For example, if a density bonus award results in
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a height that violates the Measure B height limit, the City would grant the density bonus and explain in a staff report or resolution that the Measure B restriction on height is preempted.
A key focus of Yorba Linda’s 2008-2014 Housing Element was to identify suitable sites to accommodate the City’s regional housing needs for all income levels. Default densities of 30 units per acre are typically needed to accommodate affordability for lower income households, and densities of 10 to 20 units per acre are necessary for moderate income households. After an extensive public process, an inventory of 14 sites were identified for rezoning and were incorporated within the Element adopted by City Council in October 2011. The City then undertook a 2008-2024 Housing Element Implementation Measure B Election Community Outreach Program. A Measure B vote was placed on the June 5, 2012 Primary Election and separated into two measures, the Savi Ranch Planned Development (Measure H) and nine rezoning sites (Measure I). Both Measures H and I received a majority vote of the Yorba Linda electorate.
While the 5th cycle, 2014-2021 Housing Element did not require a Measure B vote, given the significantly higher RHNA allocated to the City for the 6th cycle Housing Element, additional rezoning will be necessary. Similar to the prior vote, the City will initiate the Measure B election, and pay for all costs associated with the ballot measure. Housing Element Program #8 details the steps involved in rezoning and conducting the Measure B election. While Measure B provides citizen oversight on development in the community, it has not thus far impacted the City’s ability to address its regional housing needs or Housing Element requirements.
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2. Provision for a Variety of Housing Types
Housing Element law specifies that jurisdictions must identify adequate sites to be made available through appropriate zoning and development standards to encourage the development of various types of housing for all economic segments of the population. Table III-5 summarizes the housing types permitted in each of the Yorba Linda’s residential zoning districts.
Table III-5: Housing Types by Residential Zone Category Housing Type
Zoning District
R-A RLD R-E R-S R-U R-M R-M-20 R-M-30
Single-Family P P P P P P
Multiple-Family D D D
Condominium C D D D
Accessory Dwelling
Units
P P P P P P P P
Single Room Occupancy
Housing Facility (SRO)
C C C
Manufactured Housing D D D D D D
Community Care
Facilities (6 or fewer)
P P P P P P P P
Community Care
Facilities (7 or more)
C C C C C C C C
Transitional Housing1 P P P P P P P P
Supportive Housing1 P P P P P P P P
Emergency Shelters Up to 30 occupants – P (M-1 zone)
Greater than 30 occupants – C (M-1 zone)
Source: City of Yorba Linda Zoning Code Table 18.10-1.
P = Permitted Use C = Conditional Use D = Design Review 1Transitional and supportive housing are permitted in residential zoning districts subject to the same standards as similar residential uses. Thus, if transitional or supportive housing is configured as a multifamily structure it would be regulated as such, whereas if it is configured as a single-family structure, it would be subject to single-family regulations.
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Accessory Dwelling Units
Accessory dwelling units (also known as second units or "granny" flats) are complete independent housing units that can be either detached or attached from an existing singlefamily residence. Based on their relatively small size, and because they do not require paying for land or major new infrastructure, accessory dwelling units ("ADUs") are considered affordable by design. ADUs can provide affordable housing options for family members, seniors, students, in-home health care providers, and other small household types. ADUs can also be useful to generate additional rental income for the homeowner, making homeownership more financially feasible.
The State legislature has passed a series of bills aimed at encouraging single-family homeowners to add ADUs to their property by requiring local jurisdictions to adopt regulations to facilitate their production and streamline their approval. The State passed legislation in 2017 and again in 2019 to further assist and support the development of ADUs, including “by right” approval for units less than 850 square feet for a one-bedroom and 1,000 square feet for a two-bedroom unit. These projects must be approved at the staff level to help streamline the permit process.
In March 2020, the Yorba Linda City Council adopted an ordinance to update the Zoning Code to be consistent with changes in State law and to better facilitate the production of ADUs.
Highlights of the City’s current ADU regulations include:
• ADUs are permitted in all zoning districts that allow residential dwelling units; • Provisions for junior ADUs are now included in the Zoning Code; • Permitted unit sizes include 850 square feet for a studio and one-bedroom ADU; 1,000 square feet for an ADU with two bedrooms. Units that exceed these sizes may be approved through the Planning Commission Design Review process; • All ADUs within the sizes outlined above shall maintain a minimum four (4) foot setback on the side and rear yards for an ADU not converted from an existing structure or a new structure constructed in the same location and to the same dimensions as an existing structure. ADUs larger than 850 square feet for a studio or one bedroom, or larger than 1,000 square feet for a two bedroom must comply with the setbacks for the zoning district;
• One parking space per unit (unless specific criteria are met as outlined in the Zoning Code). Parking can be provided anywhere on the parcel, and replacement parking is not required if a garage is converted into an ADU.
Between 2014-2020, the City issued building permits for 32 accessory dwelling units, and in the first half of 2021, has averaged one ADU application per week. One-quarter of the respondents to the Senior Housing Needs Survey indicated they were interested in information on how to provide an ADU on their property, and staff is following up with these individuals. In order to further incentivize ADU production, in June 2021, the City Council adopted a pilot program to waive all City plan check and permit fees for ADUs, equating to approximately $4,500 per unit. In addition, the City intends to utilize State LEAP funds to prepare updated ADU forms, brochures and website changes to help inform property owners about ADU regulations and opportunities. Finally, the Orange County Council of
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Governments (OCCOG) is compiling a series of ADU construction plans that can be preapproved by cities and customizable at minimal cost to the applicant.
Single Room Occupancy (SRO)
Single Room Occupancy (SRO) residences are small, one room units occupied by a single individual, and may either have shared or private kitchen and bathroom facilities. SROs are rented on a monthly basis typically without rental deposit, and can provide an entry point into the housing market for extremely low income individuals, formerly homeless and disabled persons.
Yorba Linda’s Zoning Code has the following definitions for SROs:
“Single-room occupancy unit, or SRO, is a room used or intended to be used as a residential housekeeping unit by not more than two occupants for living and sleeping, with or without cooking facilities, that contains not more than one habitable room consisting of not more than 250 square feet of floor area excluding from the calculation of floor area any kitchen having less than 70 square feet of floor area.” “Single room occupancy building means any dwelling or part thereof designed or used primarily for single-room occupancy, containing five or more single-room living units, and which is occupied by the same tenants for an uninterrupted period of not less than one month.”
As presented in Table III-5, SROs are conditionally permitted within Yorba Linda’s three multifamily zoning districts.
Manufactured Housing and Mobile Home Parks
In compliance with State law, the Yorba Linda Zoning Code permits manufactured housing that meets the National Manufactured Home Construction and Safety Standards Act in any residential zoning district where single-family detached units are permitted.
Manufactured/mobile homes are subject to the same property development standards with design review added to the permitting process. The City’s Zoning Code (Section 18.10.100.D) requires manufactured housing to be placed on a solid concrete or masonry foundation, with exterior siding and roofing as customarily used in single-family dwellings. Parking must comply with the requirements for any single-family dwelling.
Mobile and manufactured homes are also permitted in the Mobile Home Park (MHP) Zone.
The MHP Zone permits the development of mobile home parks subject to the standards presented above as incorporated from State law. There is currently one mobile home park comprising approximately 288 mobile homes in northwest Yorba Linda. There is also a manufactured housing development in eastern Yorba Linda with 202 units that was built in the early 1980s.
Community Care Facilities
The Lanterman Developmental Disabilities Services Act (Lanterman Act) is that part of California law that sets out the rights and responsibilities of persons with developmental
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disabilities. The Lanterman Act impacts local zoning ordinances by requiring the use of property for the care of six or fewer disabled persons to be classified as a residential use under zoning. More specifically, a State-authorized, certified or licensed family care home, foster home, or a group home serving six or fewer disabled persons or dependent and neglected children on a 24-hour-a-day basis is considered a residential use that is to be permitted in all residential zones. No local agency can impose stricter zoning or building and safety standards on these homes. Due to the unique characteristics of larger (more than six persons) community care facilities, most jurisdictions require a Use Permit to ensure neighborhood compatibility in the siting of these facilities.
Section 18.20, Article VIII of the Yorba Linda Zoning Code provides standards and guidance regarding the establishment of community care facilities within the City. The Code identifies community care facility for six or fewer individuals (24-hour non-medical care) as a permitted use in all residential zoning districts, subject only to the development standards of the applicable zone. Community care facilities for 7 or more individuals (24-hour non-medical care) is conditionally permitted in all residential zoning districts, in addition to the OSR district, subject to approval by the Planning Commission. In February 2020, the Yorba Linda Zoning Code was amended to establish a minimum 650-foot separation between large community care facilities (7 or more persons) to better protect neighborhoods from over-concentration.
In their review of Yorba Linda’s Housing Element, the State Department of Housing and Community Development (HCD) has identified the City’s requirement for a conditional use permit (CUP) as a potential constraint on housing for persons with disabilities. To address this concern, the City has included a program in the Element to replace or modify the CUP requirement to provide greater objectivity and certainty.The California courts have invalidated the following definition of “family” within jurisdictions Zoning Ordinances: (a) an individual, (b) two or more persons related by blood, marriage or adoption, or (c) a group of not more than a certain number of unrelated persons as a single housekeeping unit. Court rulings state that defining a family does not serve any legitimate or useful objective or purpose recognized under the zoning and land planning powers of the city, and therefore violates rights of privacy under the California Constitution. A zoning ordinance also cannot regulate residency by discrimination between biologically related and unrelated persons.
Yorba Linda’s Zoning Code contains the following definition of “family”:
“Family" means two or more persons living together as a single housekeeping unit in a single dwelling unit. Family also means the persons living together in a licensed residential facility as that term is defined in Health & Safety Code Section 1502(a) (1), which serves six or fewer persons, excluding the licensee, the members of the licensee's family, and persons employed as facility staff who reside at the facility.
The State Community Care Licensing Division identifies one adult residential facility (6 person capacity) in Yorba Linda that provides 24-hour non-medical care for adults age 18-59 who are unable to provide for their own daily needs. The State also has licensed one adult care facility (5 person capacity) for people with special health care needs. A far greater number of licensed care facilities are available for seniors in Yorba Linda, with 32 residential care facilities for the elderly, providing capacity for 329 persons, in addition to two continuing care communities serving 211 persons. The City’s regulations have served to provide needed housing opportunities for seniors and persons with disabilities, and do not treat such housing for persons differently based on the personal characteristics of the residents.
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Transitional Housing and Supportive Housing
SB 2 amended Housing Element law regarding planning and approval for transitional and supportive housing, requiring these housing types to be treated as a residential use and only subject to those restrictions that apply to other residential uses of the same type in the same zone. For example, if the transitional housing is a multi-family use proposed in a multi-family zone, then zoning should treat the transitional housing the same as other multifamily uses in the proposed zone.
Transitional housing is defined as temporary housing (generally six months to two years) for a homeless individual or family who is transitioning to permanent housing. This housing can take several forms, including group housing or multi-family units, and typically includes a supportive services component to allow individuals to gain necessary life skills in support of independent living. The Yorba Linda Development Code permits transitional housing within all residential zones, subject to the same standards as similar residential uses.
Supportive housing is generally defined as permanent, affordable housing with on-site services that help resident transition into stable, more productive lives. Services may include childcare, after-school tutoring, career counseling, etc. The City of Yorba Linda regulates permanent supportive housing as a residential use, subject to the same standards as similar residential uses.
AB 2162 (effective January 2019), added additional provisions that jurisdictions must address in their regulation of supportive housing. These include:
• Allowance of supportive housing as a use by-right in all zones where multi-family and mixed-use is permitted, including non-residential zones permitting multi-family uses, if the proposed development meets specified criteria9
• Approval of an application for supportive housing that meets these criteria within specified periods
• Elimination of parking requirements for supportive housing located within ½ mile of public transit
The City has included a program in the Housing Element to amend the Development Code to address these new requirements.
Emergency Shelters
SB 2 also requires the Housing Element to address new planning and approval requirements for emergency shelters. Jurisdictions with an unmet need for emergency shelters for the homeless are required to identify a zone(s) where emergency shelters will be allowed as a permitted use without a conditional use or other discretionary permit. The identified zone must have sufficient capacity to accommodate the shelter need, and at a minimum provide capacity for at least one year-round shelter. Permit processing, development and management 9 Criteria include: 55 year affordability restrictions; occupancy by lower income households receiving public funding to ensure affordability; min. 25% of units, or 12 units, whichever is greater, restricted to residents who meet criteria of target population; a written plan for providing supportive services.
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standards for emergency shelters must be objective and facilitate the development of, or conversion to, emergency shelters.
As discussed in the homeless section of the Needs Assessment (Chapter II), the most recent Point-In-Time Homeless Count and Survey conducted by the County in 2019 identified one unsheltered individual located in Yorba Linda. However, a total of 2,765 individuals were counted in Orange County’s North Service Planning Area (which includes Yorba Linda).
The City of Yorba Linda is actively involved with local initiatives and agencies to help with homelessness. The City’s actions include:
• Participating in the North Orange County Service Planning Area (North SPA) to develop a regional approach to address homelessness, including the development of two Navigation Centers in the region. These Navigation Centers will be located in Buena Park and Placentia and will provide several services to the homeless including shelter (Buena Park – 100 beds, Placentia – 100 beds), health resources, substance abuse services, and job skills. The goal of these Centers is to help homeless individuals become productive members of their communities while reducing the number of homeless in public areas. The Navigation Center in Buena Park will be operated by Mercy House. The Navigation Center in Placentia opened in March 2020 and is operated by People Assisting the Homeless (PATH); • One City Council member is appointed to represent Yorba Linda on the Orange County Bridges at Kraemer Place Advisory Board. Bridges at Kraemer Place is a year-round emergency shelter located in Anaheim that serves 200 men and women; • Through the Orange County Sheriff’s Department, the City has its own Homeless Liaison Officer assigned to patrol and provide resources to the homeless community; and
• Yorba Linda’s affordable housing program extends both home ownership and rental housing opportunities to low- and moderate-income households in the City. A list of affordable housing locations (including those for seniors) is included on the City’s website.
Yorba Linda’s Zoning Code defines emergency shelters as “a facility that provides immediate and short-term housing and may offer supplemental services to homeless families and/or individuals on a first-come, first-serve basis where people must vacate the facility each morning and have no guaranteed bed for the next night. Supplemental services may include counseling, food, and access to social programs.” Pursuant to Ordinance 2011-968, the City’s Zoning Code allows emergency shelters with up to thirty occupants by right without discretionary review in the Light Manufacturing (M-1) zone district, and permits shelters with more than thirty occupants in the M-1 zone subject to a Conditional Use Permit. No emergency shelters are currently located within the City.
The M-1 Zone was determined by staff to be the most conducive to provision of an emergency homeless shelter by right. The M-1 Zone is intended to allow light industrial and limited service commercial uses that can meet high performance standards, but that frequently do not meet the site development standards appropriate to planned research and development parks. The zone is appropriate for research and development, assembly and/or storage of products, and wholesale facilities. More intense uses require a Conditional Use Permit. The Light Industrial designation has been applied to 288 acres of land within the planning area, including areas
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along La Palma Avenue in the southeast portion of the City in close proximity to the AT&SF Railroad and the Riverside Freeway and in SAVI Ranch area. Industrial uses are also found in the vicinity of Prospect Avenue and Imperial Highway. These sites have reasonable access to public transit. Current uses in the area suitable for conversion to an emergency shelter include larger buildings and warehouses. There are sufficient properties within the City’s M1 zone to provide opportunities for an emergency shelter.
The Yorba Linda Zoning code establishes the following objective standards to regulate emergency shelters within the M-1 zone:
1. The maximum number of beds/persons permitted to be served nightly shall be based on the individual capacity of the building and overall facility and shall not be less than fifty (50) square feet per person served;
2. On-site client waiting and intake areas shall be located internally to the building where feasible. If not feasible, an exterior waiting area shall be provided which contains a minimum of 10 square feet per bed provided at the facility. Said waiting area shall be in a location not adjacent to the public right-of-way and shall be visibly separated from public view by a minimum 6-foot tall visual screening mature landscaping or a minimum 6-foot tall decorative masonry wall;
3. Stays at the facility shall be on a first-come, first-served basis and facility clients must vacate the facility each morning and have no guaranteed bed for the next night;
4. Maximum stay at the facility shall not exceed 180 days in a 365-day period for clients with Yorba Linda residency and shall not exceed 90 days in a 365-day period for all others;
5. A minimum of one employee per 15 beds shall be on duty when the facility is open and shall be maintained during operational hours;
6. Clients shall only be on-site and admitted to the facility between 6:00 p.m. and 8:00 a.m. during Pacific Daylight Time and 5:00 p.m. and 8:00 a.m. during Pacific Standard Time;
7. A minimum distance of 300 feet shall be maintained from any other emergency shelter, any residentially zoned property and any public or private school, as measured from the property line;
8. A minimum of 1 parking stall for every 5 beds or ½ parking space for each bedroom designated for family units with children, shall be maintained.10 The number of parking spaces may be reduced by 25% if the shelter site is located within 1,000 feet of a public transit stop. Bicycle rack parking shall also be provided at the facility;
9. Facility improvements shall provide:
i) A minimum of 1 toilet for every 10 beds per gender.
ii) A minimum of 1 shower for every 8 beds per gender.
iii) Private shower and toilet facility for each area designated for use by individual families.
10. Adequate exterior lighting shall be provided for safety and security purposes;
11. Client possession and/or use of the following are prohibited anywhere on the premises of an emergency shelter: alcohol, tobacco and illegal narcotics.
12. An Operations Plan shall be provided for the review and approval of the Community Development Director, and shall remain active throughout the life of the facility. At a minimum, the Operations Plan shall address the following:
10 Pursuant to AB 139 (effective January 2020), the City has included a program in the Housing Element to amend the current parking standards for shelters from a ratio based on the number of beds to a ratio based on to the number of shelter staff.
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i) Security and safety - addressing both on and off-site needs. ii) Loitering control - including specific measures regarding off-site controls to minimize congregation of clients in the vicinity of the facility during hours that clients are not allowed on-site.
iii) Management of outdoor areas - including a system for daily admittance and discharge procedures and monitoring of waiting areas.
iv) Staff training - including knowledge and skills to assist clients in obtaining permanent shelter and income.
v) Communications and outreach - with objectives to maintain good communication and response to operational issues which may arise from the public or City staff.
vi) Counseling programs - to be provided with referrals to outside assistance agencies.
vii) Litter control - to provide for the timely removal of litter attributable to clients within the vicinity of the facility.
13. The facility may provide the following services and facilities in a designated area separate from the sleeping areas:
i) A recreation area either inside or outside the shelter. ii) A counseling center for job placement, educational, health care, legal, or mental health services.
iii) Laundry facilities to serve the number of clients at the shelter. iv) Kitchen for the preparation of meals.
v) Dining hall.
vi) Client storage areas (i.e., for the overnight storage of bicycles and personal items).
vii) Or similar services supporting the needs of homeless clients.
In their review of the City’s Housing Element, the State Department of Housing and Community Development (HCD) identified the City’s 300-foot spacing requirement between an emergency shelter and residentially zoned property and public or private schools as inconsistent with statutory requirements. The City has thus included a program in the Housing Element to amend the Zoning Code eliminate these spacing requirements.
Low Barrier Navigation Centers: AB 101, adopted in 2019, requires approval 'by right' of low barrier navigation centers that meet the requirements of State law. “Low Barrier Navigation Center” means a Housing First, low-barrier, service-enriched shelter focused on moving people into permanent housing that provides temporary living facilities while case managers connect individuals experiencing homelessness to income, public benefits, health services, shelter, and housing. If the City receives applications for these uses, it will process them as required by State law. A program has been included in the Element to develop by right procedures for processing low barrier navigation centers.
Accessibility Accommodations
Both the federal Fair Housing Act and the California Fair Employment and Housing Act impose an affirmative duty on local governments to make reasonable accommodations (i.e., modifications or exceptions) in their zoning and other land use regulations when such accommodations may be necessary to afford disabled persons an equal opportunity to use and enjoy a dwelling. For example, it may be a reasonable accommodation to allow covered
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ramps in the setbacks of properties that have already been developed to accommodate residents with mobility impairments.
For new construction, the City’s building code requires new housing to comply with the 1988 amendment to the Fair Housing Act, with multi-family development also subject to the Americans with Disabilities Act (ADA) standards. New apartment buildings are subject to requirements for unit “adaptability” on ground floor units. Adaptable units are built for easy conversion to disabled access, such as doorway and hallway widths, and added structural support in the bathroom to allow the addition of handrails.
Section 18.36.340 of the Zoning Code, entitled “Adjustments for individuals with disabilities”, provides a mechanism through which the City can grant reasonable adjustments to its zoning regulations to avoid unequal treatment towards individuals with disabilities. The procedures for reasonable accommodation are as follows:
• Reasonable accommodation requests are considered an administrative adjustment, with the Zoning Administrator serving as the decision-making body. Where the adjustment is combined with an application requiring discretionary action – such as a parcel map - the Planning Commission serves as the decision-maker. • Administrative adjustments are a non-public hearing matter and are not subject to the public noticing requirements of Section 18.36.700. However, applications for adjustment shall include a list and notification of all abutting property owners. • An individual with a disability, or designated representative, may request that any applicable development standard be modified to prevent discrimination on the basis of the individual’s disability. Adjustments shall not however be granted for deviations to standards related to gross floor area, density or lot coverage. • Adjustments granted for an individual with a disability shall be a personal accommodation for the individual and shall not run with the land.
The decision-maker shall make the following findings upon granting an accommodation:
• The individual requesting the adjustment is a qualified individual with a disability. • The requested adjustment is a reasonable modification made necessary by federal law to avoid discrimination on the basis of disability, and to assure that the disabled individual has the opportunity to enjoy the rights, privileges, and opportunities available to residents or property owners in the same zoning classification. • Any necessary conditions have been imposed to ensure that the adjustment shall not be detrimental to the public health and safety.
In addition to adjustments to zoning requirements, the City will also make any necessary and appropriate adjustments to building codes or other land use regulations, policies or practices that act as a barrier to fair housing opportunities for the disabled. A program has been included in the Housing Element to amend the Municipal Code to codify these provisions.
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Employee Housing
California Health and Safety Code Section 17021.5 (Employee Housing Act) requires jurisdictions to permit employee housing for six or fewer employees as a single-family use.
Employee housing shall not be included within the zoning definition of a boarding house, rooming house, hotel, dormitory, or other similar term that implies that the employee housing is a business run for profit or differs in any other way from a family dwelling. Jurisdictions cannot impose a conditional use permit, zoning variance, or other zoning clearance of employee housing that serves six or fewer employees that is not required of a family dwelling of the same type in the same zone.
Yorba Linda’s Zoning Code does not currently address small employee housing. As such, a program has been included in the Element add a definition and make provisions for small employee housing as a permitted use in all zone districts where single-family is permitted.
Farm Employee Housing
An estimated 74 Yorba Linda residents are employed in the industries of farming, fishing or forestry, representing 0.3 percent of the City’s labor force (SCAG 2020 Pre-certified Housing Data). Given the extremely limited presence of farmworkers in the community, the City has not identified a need for specialized farmworker housing beyond overall programs for housing affordability.
3. Site Improvements
Developers of single-family residential tracts in the City are required to install arterial and local streets; sewer; water lines; storm drainage; curbs, gutters, sidewalks; street lighting; underground utilities; and landscaping in the public right-of-way within and adjacent to a tract.
These facilities are in most cases dedicated to the City or other agencies that are responsible for maintenance. Without the site improvement requirement there are no other means of providing necessary infrastructure to the City's land parcels. Requirements for site improvements are at a level necessary to meet the City's costs and are necessary to protect health, safety, and welfare.
The cost of these required off-site improvements vary with the sales price of each unit depending on the nature of development (i.e., hillside or flatland). The City may also impose development fees on future housing developments in order to recover some of the cost of installing off-site improvements including upgrading the circulation system and other urban service systems to serve increased density. The developed portions of Yorba Linda have the majority of necessary infrastructure, such as streets, electrical and water facilities, already in place.
Yorba Linda’s Circulation Element and Subdivision Ordinance establish the City’s street width standards. Collector arterials have a two-lane undivided roadway, with 40 feet of curb-to-curb width within 60 feet of right-of-way. Collector streets would typically have a travel lane in each direction and a parking or bike lane on each side. Collectors carry traffic from the neighborhoods to the higher classification street system. A secondary arterial is a four-lane undivided roadway, with 64 feet of curb-to-curb width within 80 feet of right-of-way. Secondary
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arterials often distribute traffic between local streets and Major and Primary Arterials and provide more direct access to surrounding land uses.
4. Development Fees
The City collects various fees from development to cover the costs of processing permits, including fees for planning approvals, subdivision map act approvals, environmental review, public works and plan check services, and building permits, among others. The City also charges several impact fees to offset the future impact of development on parks, and traffic and circulation. Table III-6 provides a listing of residential development fees in Yorba Linda.
After not updating its fees since the early 1990s, the City adopted a new fee schedule in January 2020, and is phasing in the updated fees over a three year period. For Conditional Use Permit, Design Review and Zone Change applications, affordable housing projects may have fees waived or reduced by the City Council for projects with at least 20 percent of the dwelling units restricted and affordable to lower income households for a minimum of thirty (30) years.
As a means of assessing the cost that fees contribute to development in Yorba Linda, the City has calculated the total Building, Planning and Engineering fees associated with development of a prototypical apartment project consisting of 36 two-bedroom units. As indicated in Table III-7, development fees for the prototypical apartment development run approximately $13,700 (Table III-7), with School fees, the Eastern Transportation Corridor fee and Sanitary Sewer Connection fees representing the highest cost fees.
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Table III-6: Residential Development Fees
Planning Fees* Flat Fee Initial Deposit
Accessory Dwelling Unit Request $1,120.00
Conditional Use Permit
- Single-Family
- All Others
$1,246.00
$2,757.00
Design Review $3,000.00
Development Agreement $7,581.00
Environmental Evaluation – IS/MND
- City Administrative Fee $1,895.00
Environmental Evaluation - EIR
- City Administrative Fee $3,790.00
Environmental Mitigation Monitoring Program $189/hour
General Plan Amendment $7,581.00
Lot Line Adjustment $1,830.00
Preliminary Project Review
- Minor – over the counter
- Major – Formal meeting/multiple City Depts.
No Charge No Charge
$1,956.00
Specific Plan $7,581.00
Tentative Parcel Map $7,225.00
Tentative Tract Map $10,051.00
Minor Change of Approved Tentative Maps
- Public Hearing Required
- No Public Hearing Required
$1,629.00
$766.00
Revised Tentative Tract Map (after PC Approval) $2,148.00 Variance $1,641.00
Zone Change (including pre-annexation) $7,581.00
Impact Fees Fee Amount
School Impact Fee
$3.48/square foot
(Placentia/YL USD)
$3.79/square foot
(Orange USD)
Sewer Connection Fee
- 1 bedroom
- 2 bedrooms
- 3 bedrooms
- 4 bedrooms
- 5+ bedrooms
$3,083
$4,029
$4,973
$5,918
$6,912
Park Development Fee
- Single-Family Dwelling
- Multiple-Family Dwelling (ownership)
$16,716 per lot
$10,718 per unit
Eastern Transportation Corridor Fee
- Single-Family Residence
- Multi-Family Residence
$4,217 per lot
$2,513 per unit
Traffic Impact Mitigation Fee (County Measure M) $600 per dwelling Source: City of Yorba Linda Development Processing Fees Effective January 2, 2020; PYLUSD October 2020; OUSD October 2020; OC Sanitation District, Fees effective July 2020.
2021-2029 HOUSING ELEMENT III-23 HOUSING CONSTRAINTS
Table III-7: Development Fees: Prototypical Apartment Project (36 units) Type of Fee Total Project Fee
Plan Check
Building Permit
Electrical Permit
Mechanical Permit
Plumbing Permit
Seismic Motion Study
School Fee ($3.48/sf)
Subtotal Building Fees
$17,956
19,180
2,447
1,675
1,619
502
132,208
$175,587
Preliminary Project Review (Major)
Design Review
Environmental Evaluation – IS/MND (City Admin Fee)
Subtotal Planning Fees
$1,956
$3,000
$1,895
$6,851
Grading and Plan Check/Permit (est.)
Soil Report Review & Testing (est.)
Improvement Plan Check/Inspection (est.)
Sanitary Sewer Connection Fee
Traffic Impact Mitigation Fee ($600/unit)
Eastern Transportation Corridor Fee ($2,513/unit)
Subtotal Engineering Fees
$30,550
5,000
17,719
145,044
21,600
90,468
$310,381
TOTAL PROJECT FEES
TOTAL FEES PER UNIT
$492,819
$13,689
Source: City of Yorba Linda Community Development Department, November 2020.
The City also reviewed fees for single-family development based on a current single-family subdivision at 18123 West Bastanchury. Fees for a 4,087 square foot, 4 bedroom unit in this development are presented below. With homes projected to sell in the low $2 million range, fees represent approximately two percent of the sales price.
Type of Fee Fee Amount
Permits Fee $4,469
Building/Electrical/Mechanical/Plumbing Plan Check $3,036 Park Development Fee (Quimby Act) $16,716
Orange County Sanitation District Fee $6,362
Eastern Transportation Corridor Fee $4,405
TOTAL FEES $34,988
In summary, Yorba Linda’s development fees represent a small proportion of the overall valuation of residential development and have not served as a constraint to development. In addition, AB 641 helps to address the cash flow problems inherent in many affordable housing projects during the construction phase. For affordable housing developments in which at least 49 percent of the units are affordable to low or very low income households, AB 641 prohibits local governments from requiring payment of local developer fees on affordable housing projects prior to receiving a certificate of occupancy.
2021-2029 HOUSING ELEMENT III-24 HOUSING CONSTRAINTS
5. Local Processing and Permit Procedures
The evaluation and review process required by City procedures contributes to the cost of housing in which developer holding costs are incurred. The Planning Commission in Yorba Linda is entrusted with approval of applications. The Commission’s decision may be appealed to the City Council.
Pursuant the City’s Municipal Code, development of a single-family residence in any residential zone is a permitted use. The typical review process for a single-family residence usually consists of an “over-the-counter” plan check with the Planning Division in which plans are checked for compliance with applicable codes and development standards. From there, the applicant brings their plans to the Building Division for submittal of plans into plan check.
Depending on the quality of plans submitted, the entire process could take as little as 45 days but may take longer if subsequent plan checks are required. The average processing time for single-family plan check/building permit in Yorba Linda is 60 days.
The City’s development review process for multi-family residential projects involves the following steps:
1. Submittal of an application to the Planning Division for Design Review (DR). If the project site includes two-story buildings that are located within 70 feet of an existing single-family residential structure, a Conditional Use Permit (CUP) shall be required.11 These two reviews may be processed concurrently. The DR is held as a public meeting and the CUP is held as a public hearing before the Planning Commission.
2. Review of application completeness by the Project Review Committee (PRC), composed of representatives from reviewing agencies. Application is reviewed within 13 days of submittal. If application is complete, scheduled for next Planning Commission agenda. If incomplete, applicant has 1 week to complete and still remain on schedule for next Planning Commission.
3. Once an application is deemed complete, the project is presented to the Planning Commission within 4 to 6 weeks for Design Review, and as necessary, the CUP.
For example, a condominium project would submit concurrent applications for a subdivision tract map and design review for the architecture of the buildings. All applications are reviewed by staff (PRC) and then submitted to the Planning Commission for review and approval.
Multiple-family residential projects (defined as projects with densities of 4 units/acre and above) are reviewed by staff for consistency with Yorba Linda’s Multi-Family Residential Design Guidelines. Project proposal consistency with the written, objective standards in the Guidelines is an important component in the City’s goal of facilitating the review and approval process for multi-family residential development projects; there are no approval findings required for a finding of consistency with the Design Guidelines. The Design Guidelines provide a clear set of design policies to the development community, with the goal of expediting the planning review process by clearly stating the community’s expectations for quality design of multi-family residential development. 11 Because multi-family sites in the Housing Element are part of a rezoning program to address a shortfall in sites to address the City’s lower income RHNA, development on these sites is subject only to ministerial review, and thus will not require a CUP.
2021-2029 HOUSING ELEMENT III-25 HOUSING CONSTRAINTS
As a means of providing a buffer between single and multi-family uses, the City’s RM development standards require a 50 foot setback from any single-family zone for buildings exceeding 15 feet in height. This setback encourages multi-family site design with a singlestory component, and/or open space and parking areas located closest to adjacent singlefamily zoned properties. In combination with the City’s single-family setback requirements, multi-family structures adhering to the City’s development standards would not typically be located within 70 feet of a single-family structure, and thus would not trigger the requirement for a CUP. The City’s Multi-family Design Guidelines further address potential privacy and view impacts between single and multi-story residential uses.
Standards for design of parking structures, lighting, mechanical equipment, roofs, and chimneys; height determination; public access; exterior buildings/structure walls; trash enclosures; screening; fences, walls, and hedges; perimeter walls/fencing; and street dedications and improvements are provided in Chapter 18.26 of the Zoning Code. Guidelines for building articulation, signage, landscaping, new additions to existing buildings, compatibility with adjacent uses, and air quality and energy conservation improvements are also provided. The Planning Commission has the authority to approve the design.
Residential projects in Yorba Linda generally receive concurrent processing and receive approval from the Planning Commission. Table III-8 presents average processing times in Yorba Linda, which compare favorably to other Orange County communities.
Table III-8
Development Processing Times
Process Average Time
(in months)
Site Plan Review (Staff) 2 weeks
Site Plan Review (Planning Commission) 2 - 3
Plan Checking/Building Permits 3 - 4
Tentative Tract Map 2 - 3
EIR 9 - 12
Conditional Use Permit/ Variance 2 - 3
General Plan Amendment 6 - 9
Zone Change 6 - 9
Source: City of Yorba Linda, 2020.
SB 35 Streamlining
SB 35 (Government Code section 65913.4) allows qualifying development projects with a specified proportion of affordable housing units to move more quickly through the local government review process and restricts the ability of local governments to reject these proposals. The bill creates a streamlined approval process for qualifying infill developments in localities that have failed to meet their regional housing needs allocation (RHNA), requiring a ministerial approval process, removing the requirement for CEQA analysis, and removing the requirement for discretionary entitlements granted by the Planning Commission.
2021-2029 HOUSING ELEMENT III-26 HOUSING CONSTRAINTS
Since the adoption of this section of the Government Code, the City has not yet received an application under these provisions. The City has included a program in the Element to prepare an SB 35 checklist and written procedures for processing SB 35 applications.
6. Building Code
As required of all jurisdictions in California, Yorba Linda has adopted the latest California Building Code, which incorporates the most recent International Building Code and establishes construction standards necessary to protect public health, safety and welfare.
Yorba Linda has also incorporated the California energy code and California Green Building Code Standards into the City’s Municipal Code.
The City adopted a local amendment to the Building Code requiring an on-site, automatic firesprinkler system in all new residential construction with a floor area of 5,000 square feet or greater or more than two stories in height. This is due to the hot, dry and strong Santa Ana winds, particularly in the fall and spring seasons and the potential of fires.
2021-2029 HOUSING ELEMENT III-27 HOUSING CONSTRAINTS
B. MARKET CONSTRAINTS
1. Availability of Financing
The availability of financing in a community depends on a number of factors, including the type of lending institutions active in the community, lending practices, rates and fees charged, laws and regulations governing financial institutions, and equal access to those institutions.
Through analysis of Home Mortgage Disclosure Act (HMDA) data on the disposition of residential loan applications, an assessment can be made of the availability of residential financing within a community.
Table III-9 summarizes HMDA data for both Yorba Linda and Orange County, providing information on the approval status of all home purchase, refinance and home improvement loan applications during 2016.
➢ Of the total 1,161 completed applications for home purchase loans in Yorba Linda, 89 percent were approved and 11 percent were denied, comparable to the approval rate County-wide. Review of mortgage loan denial rates by Yorba Linda’s census tracts does not identify any tract with denial rates ten points or above the 11 percent citywide average.
➢ The volume of applications for refinance loans in Yorba Linda was almost three times that of home purchase loans, with 79 percent of the total 3,436 applications receiving approval and 21 percent denied.
➢ The number of applications for home improvement loans in Yorba Linda was 261, with 80 percent of applicants receiving approval and 20 percent being denied, a higher approval rate than County-wide.
Table III-9: Status of Home Purchase and Home Improvement Loans 2016 Loan Type
Completed
Loan
Applications
Loans Approved Loans Denied
Yorba
Linda
Orange
County
Yorba
Linda
Orange
County
Conventional Home Purchase Loans
# Applications 1,161 1,028 133
% Approval/Denial 89% 87% 11% 13%
Refinancing
# Applications 3,436 2,711 725
% Approval/Denial 79% 77% 21% 23%
Home Improvement Loans
# Applications 261 209 52
% Approval/Denial 80% 76% 20% 24%
Source: Home Mortgage Disclosure Act Data, 2016. Compiled by Karen Warner Associates.
Note: Approved loans include: loans originated and applications approved but not accepted. Denial rate based on applications that went through complete underwriting process, and exclude applications withdrawn or files closed for incompleteness.
2021-2029 HOUSING ELEMENT III-28 HOUSING CONSTRAINTS
2. Price of Land
The availability and price of land are potential constraints to the development of housing for all income levels. Based upon a recent valuation by the non-profit developer National CORE of one of the City’s multi-family rezone sites, vacant multi-family land is valued at roughly $30- $35 per square foot. In addition, two recent appraisals of a large vacant site in Yorba Linda suggest an average land cost ranging from $24-$29 per square foot. Per unit land cost is directly affected by density, with higher densities allowing the cost of land to be spread across more units. By increasing permitted densities on select multi-family sites, the City has helped to reduce per unit land costs.
3. Cost of Construction
A major cost associated with the development of housing is the cost of building materials, which have risen dramatically in recent years. Over the past three years (2017-2020), the cost of raw materials (lumber, concrete, steel, etc.) have increased by 20 percent, compared to a 7.5 percent rise in inflation. This particularly impacts the cost of high-density, Type V construction which requires costly non-combustible steel-frame construction materials. Labor costs have also risen dramatically, and are compounded by a shortage of qualified construction workers.
A reduction in amenities and the quality of building materials (above a minimum acceptability for health, safety, and adequate performance) can result in lower development costs. As part of the City’s density bonus program, the City allows for affordable units to be smaller in size (maintaining the same number of bedrooms) and have different features and interior finishes than market rate units, provided all project units were comparable in construction quality and exterior design. Another factor related to construction costs is the number of units built at one time. As that number increases, overall costs generally decrease as builders are able to take advantage of the benefits of economies of scale.
4. Requests to Develop at Densities Below Those Permitted New State Housing Element law now requires the non-governmental constraints analysis to evaluate developer requests to build at densities below the density identified in the Housing Element sites inventory.
Due to a shortfall in sites to address the City’s 2008-2014 RHNA, the City upzoned 14 sites at densities of 10, 20 and 30 units/acre, as ratified by the electorate in a Measure B vote in June 2012. Eleven of these sites have now been developed or received entitlements, providing information on actual developed densities. (Refer to the City’s Housing Element website for a table showing the status of all 14 housing element sites https://www.ylhousingelementupdate.com/housing-element-cycles). Table III-10 summarizes the range of built densities among the 11 multi-family sites:
2021-2029 HOUSING ELEMENT III-29 HOUSING CONSTRAINTS
Table III-10: Permitted vs Built Densities
Zoning Max. Permitted
Density
Range of Actual
Built Densities
Average Built
Density
RM-10 10 du/acre 8.7 – 10 du/acre 9.6 du/acre
RM-20 20 du/acre 20 du/acre 20 du/acre
RM-30 30 du/acre 15 – 22 du/acre 18.4 du/acre
As shown, while RM10 and RM20 sites built at close to the maximum permitted density, the five RM30 sites were built out at an average density of just 18.4 units/acre. Several factors contribute to this underbuilding. As City staff heard from several developers, 30 unit/acre densities typically necessitate podium parking unless unit sizes are reduced, thereby significantly adding to project costs. And developers of townhomes have asserted the market in Yorba Linda is for larger units for families, thereby resulting in reduced densities.
In order to incentivize development which better implements densities planned in the Housing Element sites inventory, the Housing Element sets forth a program to establish an Affordable Housing Overlay zone. Parcels designated with an Affordable Housing Overlay would receive density increases above the base density, along with a variety of development incentives, in exchange for development of either 20 percent lower income units in a rental project, or 20 percent moderate income units in an ownership project.
5. Length of Time between Application Approval and Building Permit Issuance
New Housing Element law now also requires an examination of the length of time between receiving approval for a housing development and submittal of an application for building permits. The time between application approval and building permit issuance is influenced by a number of factors, none of which are directly impacted by the City. Factors that may impact the timing of building permit issuance include: required technical or engineering studies; completion of construction drawings and detailed site and landscape design; securing construction and permanent financing; and retention of a building contractor and subcontractors.
The majority of residential permits in Yorba Linda are for single-family homes, with building permit issuance generally taking 8-14 months after Planning approvals. Hillside properties may take a few months longer due to the need for technical and engineering studies. Among the City’s recent multi-family developments, the time between approvals and permit issuance has averaged 12-18 months. In Yorba Linda, most approved projects are constructed in a reasonable time period.
2021-2029 HOUSING ELEMENT III-30 HOUSING CONSTRAINTS
C. ENVIRONMENTAL AND INFRASTRUCTURE CONSTRAINTS
A wide range of environmental factors may constrain the development of new housing in Yorba Linda. The largest concentrations of undeveloped lands are along the City’s north and northeastern periphery extending into the foothills and hillsides of the Sphere of Influence.
These areas are likely to contain environmental habitats and constraints on development, such as steep slopes, wild/brush fire potential, landslides, necessity for reclamation of oil operations, and so on. Historically, development has varied in the degree and sensitivity to which it has accounted for these constraints. Most have sited housing units in ways to maintain the hillside’s unique character and resources. Others have extended typical flatland subdivisions into the hillside, using mass grading altering natural resources and landform. As development demands and pressures persist, the extent to which development will be permitted on the City’s hillsides is of particular concern.
The Regional Housing Needs Assessment (RHNA), mandated by the State Housing Law, quantifies the need for housing within each jurisdiction during specific planning periods. The state-mandated RHNA obligation for the City requires an additional 2,415 housing units. In order to meet this threshold, the City has identified various sites within the City which are most suitable for new or increased residential development. Due to the extent of environmental constraints in Yorba Linda’s northern hillsides, as well as the 100 year flood zone in the southeastern area of the City, Housing Element sites have avoided these areas and are instead limited to infill locations within existing developed areas. While several larger sites included in the sites inventory have portions which are constrained by topography, the City’s zoning allows the unit potential from non-developable portions of a site to be transferred to the flatter, more developable areas of the site. In conclusion, none of the sites included in the Sites Inventory have significant environmental constraints which impede their development.
Areas of special environmental significance, potential safety hazards, and development constraints will influence land use policy. The City of Yorba Linda Safety Element identifies a number of environmental constraints for the City, including slope stability, wildfire, flooding, seismic hazards, and oil well hazards. The Yorba Linda General Plan recognizes these hazards and identifies programs to minimize them. The availability of public infrastructure and services for residential development is another potential constraint to the development of housing. The following are more detailed discussions of these environmental constraints and hazards which affect, in varying degrees, existing and future residential developments.
1. Slope Stability – Landslides and Subsidence
As the City’s Safety Element points out, slope stability is a serious geologic problem in the northern and eastern portions of the City. This area is underlain by siltstone and interbedded sandstone of the Puente Formation and are often the most prone to landsliding and other forms of slope failure. Along Telegraph Canyon and other east-west trending canyons, landslides are more common than on south-facing slopes which are typically underlain by thick soil and slopewash. Soil creep and shallow slope failures also occur more on the eastwest trending slopes. While the northern and eastern portions of the City contain the largest areas of slope instability, various isolated landslide zones exist within City boundaries which have the potential to affect lands with the potential for residential development.
2021-2029 HOUSING ELEMENT III-31 HOUSING CONSTRAINTS
2. Wildfire
Yorba Linda is subject to wildfires due to the steep terrain, highly flammable vegetation of adjacent Chino Hills and the high winds (Santa Ana winds) that correspond with seasonal dry periods. Major fires have threatened the City in the past. High wildfire hazard areas include the northern and eastern portions of the City.
Since 1980, the Yorba Linda area has experienced 25 separate wildland fires, burning a total of 96,698 acres; single events range from one to nearly 20,000 acres. The most notable and devastating of these were the 1982 Gypsum Incident (19,986 acres), the 1980 Owl Incident (18,332 acres), the 1980 Carbon Canyon Incident (14,613 acres) the 2006 Sierra Peak Incident (10,506 acres), and the 2020 Blue Ridge Fire (13,964 acres). The commonality of each of these larger fires is the Santa Ana Wind and the effect it has on vegetation and fire behavior. The Santa Ana Canyon funnels the wind, increasing its speed and magnifying the effects on the available fuel bed. The frequency of fire in this area has allowed non-native vegetation of volatile grasses and weeds to become the dominate fuel type.
On November 15, 2008, Yorba Linda experienced the Freeway Complex Fire. The Orange County Fire Authority’s preliminary report (December 2, 2008) on the fire indicated that the fire consumed 30,305 acres; destroyed 187 residential structures (including multi-family residential buildings) and damaged 127 residential structures. Four commercial properties were destroyed or damaged, along with 43 outbuildings.
The California Department of Forestry and Fire Protection (CAL FIRE) identifies Fire Hazard Severity Zones (FHSZ) and shares that information with local agencies. CAL FIRE map areas of FHSZ within Local Responsibility Areas (LRAs) and State Responsibility Areas (SRAs).
Development within FHSZ requires careful consideration of elements which may increase the risk of wildfires, such as vegetation, topography, and ember movement. A portion of lands suitable for residential development within the City are classified within FHSZ.
3. Flooding
The City has within its boundaries a number of identified 100-year floodplains. A 100-year floodplain is defined as an area that has a one percent or greater chance of experiencing a flood inundation in any given year. The floodplain areas in Yorba Linda has been established by the Federal Emergency Management Agency (FEMA) and are shown on Flood Insurance Rate Maps (FIRMS). The 100-year floodplain poses minimal threats to developed lands in the City. The City has designated these areas as “Open Space,” with a zoning designation overlay of Floodplain (FP-2). Allowable uses in floodplain areas are limited to flood control and roadway projects, temporary structures, agricultural uses, parks and wildlife/natural preserves and open space.
4. Seismic Hazards
Like most other cities in Southern California, Yorba Linda is at risk of suffering structural damage and loss of life during an earthquake of significant magnitude. The following regional and local active and potentially active faults are all potentially hazardous to the City: Whittier, Elsinore, San Andreas, Newport-Inglewood, Peralta Hills, Chino and San Jacinto. In particular, the Whittier fault line cuts across Yorba Linda diagonally (northwest/southeast
2021-2029 HOUSING ELEMENT III-32 HOUSING CONSTRAINTS
orientation). The Whittier fault zone (including Whittier, Elsinore, and Chino faults) is an Alquist-Priolo Special Studies Zone. Surface fault rupture hazard is high within the boundaries of this zone, according to the Safety Element. Yorba Linda is located between 4 and 32 miles of the other faults with groundshaking hazards from each of the faults. Most areas of Yorba Linda are assumed to be at low risk for liquefaction hazards, since the water table in most places is deeper than 50 feet. The other threat in an earthquake is damage to structures. In Yorba Linda, unreinforced masonry structures, built prior to 1930, are the primary concern.
Such remaining structures are most likely to be found in the downtown area.
5. Oil Well Hazards
The Yorba Linda oil field is primarily located in the northern area of the City. The topography of the field is hilly with ground elevations ranging from approximately 400 to 650 feet above sea level. Issues related to the oil field include occasional spills of crude oil and groundwater contamination. More long-term issues involve the decommissioning of the oil field, abandonment of the wells and development of the area after it is no longer used as an oil field. Wells must be vented to the atmosphere and plugged for several hundred feet with cement or clay-based mud according to the specifications in the Abandonment/ Reabandonment Guidelines published by the Division.
6. Public Services and Facilities
The majority of Yorba Linda has the necessary infrastructure, streets, electrical lines, and water distribution, already in place for new development. New development is able to tap into existing water and sewer lateral lines, with no new sewer or water mains necessary. The City’s 2016 General Plan identifies adequate infrastructure and public service capacity to accommodate the City’s regional housing needs of 669 additional dwelling units during the 2014-2021 Housing Element planning period.
In 1990, Orange County voters approved the first Measure M, the Revised Traffic Improvement and Growth Management Ordinance (M1), which provides funding to Orange County for needed transportation improvements over a 20-year period through the imposition of a one-half cent retail transaction and use tax. In 2006, voters approved a continuation of transportation improvements through the Measure M Transportation Investment Plan (M2).
Although Measure M2 no longer requires Orange County jurisdictions to prepare a Growth Management Element to comply with program requirements, the City of Yorba Linda has amended its 1993 Growth Management Element to continue its commitment to balance local growth with the ability of the local roadway system to support it. As part of the Program, Yorba Linda implemented a development mitigation program establishing the following fees:
Eastern Transportation Corridor Fee and a Traffic Impact/Mitigation Fee. The City has established a Capital Improvement Program for the transportation systems improvements to effectively manage the system based on the OCTA timetables. This is an on-going, consistently updated program in Yorba Linda.
The City also participates in a variety of inter-jurisdictional efforts, related to Measure M; City and County impact fees; traffic and land use; jobs/housing balance; Facility Implementation Plans; and coordination of growth projections for the City and the County. These efforts enable Yorba Linda to coordinate the provision of public services and adequate facilities with other adjacent cities and the County of Orange.
2021-2029 HOUSING ELEMENT IV-1 HOUSING RESOURCES
IV. HOUSING RESOURCES
This section presents the various resources available for the development, rehabilitation, and preservation of housing in Yorba Linda. This includes the availability of land resources, financial resources available to support housing in the community; administrative resources available to assist in implementing Yorba Linda’s housing programs; and resources for energy conservation and reducing greenhouse gas emissions.
A. AVAILABILITY OF SITES FOR HOUSING
This section documents the availability of sites for future development and the adequacy of these sites to address Yorba Linda’s regional housing needs for the 2021-2029 planning period. The City plans to fulfill its share of regional housing needs using a combination of the methods below, which are further described in the following narrative:
➢ Residential projects with development entitlements with occupancy post 6/30/2021 ➢ Sites with zoning in place (Town Center Specific Plan and RM-30 zoned sites) ➢ Provision of accessory dwelling units
➢ Rezoning of multi-family opportunity sites and designation of select sites with an Affordable Housing Overlay
➢ Designation of a key shopping center site and vacant commercial parcel with a MixedUse Housing Overlay ➢ Designation of congregational sites with a Congregational Land Overlay Table IV-1 on the following page summarizes the residential unit potential from the above methods and provides a comparison with Yorba Linda’s 2021-2029 RHNA. Parcel specific site inventories and maps are included in Appendix C to the Element.
2021-2029 HOUSING ELEMENT IV-2 HOUSING RESOURCES
Table IV-1: Potential Housing Units during 2021-2029 Planning Period Income Levels Very
Low
Low Moderate Above
Mod
Total
2021-2029 RHNA Targets 7651 451 457 742 2,415
Existing Zoning
Entitled Projects (post 6/30/2021 occupancy) 181 181
Town Center Specific Plan 31 31
RM-30 12 12
Accessory Dwelling Units 100 172 120 8 400
Existing Site Capacity 272 163 189 624
RHNA Shortfall (944) (294) (553) (1,791)
Rezone Sites
Planned Development 64 130 194
RM 129 209 338
RM-20 40 26 40 106
Affordable Housing Overlay 710 72 782
Mixed Use Housing Overlay 26 136 163 325
Congregational Land Overlay 355 355
Total Site Capacity (Existing + Rezone Sites) 1,403 518 803 2,724 RHNA Buffer +187 +61 +61 +309
1One-half of the City’s Very-Low Income housing needs are for Extremely-Low Income households.
As shown in Table IV-1, the City has a total capacity for 624 units with zoning in place, reflecting a shortfall in 1,791 units needed to address the RHNA. The City has conducted extensive community outreach and meetings with property owners to identify those sites most suitable for rezoning to multi-family use at 10+ units per acre to address this shortfall. To specifically address the need for housing to address the needs of lower income households, the City is proposing to establish several new Housing Overlay zones: an Affordable Housing Overlay, a Mixed-Use Housing Overlay, and a Congregational Land Overlay, each described later in this section. Sites recommended for re-designation were selected based on several factors: existing land use and feasibility for redevelopment within the planning period; property owner interest; neighborhood compatibility and community context; and an overriding goal to disperse affordable housing opportunities throughout the community. The Housing Element includes a rezoning program (Program 8) for these sites. Prior to implementation of the rezoning, a ballot measure will be required to obtain voter approval, as stipulated by Measure B.
In terms of evaluating the adequacy of these sites to address the affordability targets established by the RHNA, Housing Element statutes provide for the use of “default densities” to assess affordability. Based on its population and location within Orange County, Yorba Linda falls within the default density of 30 units per acre for providing sites affordable to very low and low income households; sites suitable for moderate density households can be provided at 10 units per acre. The City has used these default density thresholds as a guide
2021-2029 HOUSING ELEMENT IV-3 HOUSING RESOURCES
in allocating its sites inventory by income category, as presented in Table IV-1. A comparison of the site’s inventory income distribution under the proposed rezoning program with the City’s RHNA identifies sufficient sites at appropriate densities to accommodate Yorba Linda’s regional housing needs.
It is to Yorba Linda’s benefit that its residential site capacity exceeds the minimum RHNA required within each income category to help offset any sites that may be developed with fewer units or to a lesser affordability than assumed in the Housing Element sites inventory.
A healthy buffer above the required RHNA therefore provides a “margin of safety” from having to rezone additional sites during the 2021-2029 planning period of the element.
1. Projects with Entitlements
Yorba Linda has two projects with development entitlements that will contribute towards addressing its future RHNA needs, as described below:
➢ ETCO Homes. This approximately 5-acre site located at Mariposa and Lakeview was identified in the prior Housing Element and upzoned to RM-30. On July 25, 2018, the Planning Commission approved a senior, continuing care community on the site consisting of 82 independent living units, 76 assisted living units, and 82 units for residents with memory care needs. Construction on the project is anticipated to start the end of summer 2021.
➢ West Bastanchury. This 13.1 acre site located south of Bastanchury between Casa Loma and Eureka is being developed by Shea Homes with 23 homes on 15,000 square foot parcels. Building permits are anticipated in late 2021.
2. Sites with Zoning in Place
Of the 14 sites that were rezoned as part of Yorba Linda’s 4th cycle Housing Element, just one remains to be developed. The ½ acre Postal Annex and self-serve car wash site was previously rezoned to RM-30, providing for development of 14 units. Recent discussions with the property owner indicates a strong interest in moving forward with housing on the site, along with the parcel immediately to the west, which has been included in the 6th cycle Housing Element for upzoning as a means of creating a larger parcel for development.12 The Town Center Specific Plan, adopted in 2011, provides some limited opportunities for residential mixed use. Within the Historic Town Center District along Main and Olinda Street, the Specific Plan allows development to incorporate apartments above or behind ground floor retail. Densities of up to 10 units/acre and heights of up to 35 feet are permitted in this district.
Staff has evaluated the parcels in this area, and identified the potential for 31 residential units. 12 Because this site has not been identified to accommodate a lower income RHNA need, it is not subject to byright development approval under AB 1397.
2021-2029 HOUSING ELEMENT IV-4 HOUSING RESOURCES
3. Accessory Dwelling Units
Accessory dwelling units (ADUs) are small, self-contained dwelling units that provide a kitchen, bathroom and sleeping area. The unit can be attached to the main home with a separate entrance or can be a small detached unit in the rear yard or above a garage. Because of their small size, ADUs typically rent for less than apartments, and can provide affordable rental options for smaller households, and can provide rental income for the homeowner.
Between 2018-2020, the City has approved 31 ADUs or approximately 10 ADUs per year; however, in 2021, the City has seen a trend of approximately one ADU application per week (or nearly 50 per year). In fact, the City has approved 27 ADU permits in 2021, an increase of 65% over the previous average three-year history from 2018-2020. Based on the growth trends over the past three years (2019-2021), the City anticipates approving 50 ADU permits in 2022.
As shown in the chart above, upon adoption of the City’s ADU Ordinance in March 2020, the City began seeing a significant increase in the number of ADU applications. Furthermore, with adoption of the fee waiver pilot program ADU permit and plan check fees in June 2021, the City saw a 2.5 times increase in applications from the prior year. As the City has become more efficient in processing ADU applications, including eliminating the requirement for internal review by the City’s Planning Review Committee, the time between application submittal and permit issuance has narrowed significantly. Pursuant to AB 671, the Housing Element includes a program to further incentivize the production of affordable ADUs, including a pilot program to waive ADU plan check and permit fees; pre-approved ADU plans to streamline the project application and review process and reduce upfront project costs; promotion of ADUs through handouts, simplified application forms and an ADU website page; and exploration of a program to provide ADU funding assistance to homeowners that provide affordability covenants.
5 5 6 7 6
10 11
18 44
73 120
1 5 4 4
1 7
4 6
27 45
74 0
20 40
60 80
100
120
140
2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023
ADU Application and Permit Approval History/Trends
Applications Approved
2021-2029 HOUSING ELEMENT IV-5 HOUSING RESOURCES
Yorba Linda has a number of unique characteristics that make the realistic development capacity of ADUs significantly higher than in many other parts of the region. These characteristics include:
1) Large lot sizes – Yorba Linda’s minimum lot size is 7,500 square feet, with the majority of residential properties having a minimum lot size of 15,000 square feet. These are extremely large lots compared to much of the rest of suburban neighborhoods.
Furthermore, residential lots in Yorba Linda have a minimum 75 foot lot width and 100 foot lot depth; however, the majority of residential properties have a minimum lot width of 100 feet and a minimum lot depth of 150 feet. Clearly, these are large lots in comparison to most residential lots in California, resulting in multiple options available for attached, detached, or conversion for ADUs & JADUs.
2) Development Standards – Yorba Linda’s development standards for residential zones are set up in order to allow for ample setbacks and building separation between neighbors in order to encourage privacy and openness. These development standards create significant opportunities for ADUs to be constructed in comparison to most other cities with less restrictive development standards. Given that ADUs up to 800 SF are exempt from most local development standards, the City of Yorba Linda provides many opportunities for ADU construction. Furthermore, an incentive could be considered that would exempt all ADUs from certain development standards.
a. Lot coverage – Yorba Linda has a maximum lot coverage of between 35%- 40% in residential zones. ADUs less than 800 SF are not subject to lot coverage restrictions.
b. Setbacks – Even the most restrictive residential zones require 20 foot rear yard setbacks and side yard setbacks of approximately 10 feet. However, the majority of Yorba Linda parcels have between 30-40 foot rear setbacks with side yard setbacks between 10-20 feet.
3) Most homes in Yorba Linda have at least three car garages, with many homes having more than four garage spaces. This additional space is ripe for being converted into ADU or JADU space. Furthermore, most Yorba Linda homes have a driveway capable of accommodating at least three vehicles, whereas most other jurisdictions can only accommodate one or two vehicles in the driveway.
4) Yorba Linda has one of the highest median household incomes in the SCAG region.
This high level of disposable income can facilitate ADU construction based on the ability to self-finance development. The UC Berkeley ADU study13 confirms that property owners with a new ADU on their property are more affluent than the typical homeowner in California, suggesting that there may not be adequate financing option for lower to moderate income households to construct an ADU. 5) Nearly the entire City of Yorba Linda is located in high opportunity areas based on the latest TCAC maps. Therefore, ADU development is one of the best ways for the City to support affirmatively furthering fair housing.
6) The City’s local ADU ordinance provides for some opportunities to relax some standards, making it even easier to get approval.
13 Chapple, K., Ganetsos, D., Lopez, E. (April 22, 2021). Implementing the Backyard Revolution: Perspectives of California’s ADU Owners. Retrieved from https://Implementing-the-Backyard-Revolution.pdf (aducalifornia.org)
2021-2029 HOUSING ELEMENT IV-6 HOUSING RESOURCES
7) Yorba Linda’s Measure B (Citizen’s Right to Vote Initiative) puts housing approvals in the hands of the voters, whereas ADUs are already by-right opportunities. 8) HCD has also approved an ADU affordability analysis prepared by SCAG. For Orange County, this allows jurisdictions to assume ADUs to be counted towards its lower income RHNA as follows: 15% as very low income, 57% as low income, and 28% as moderate income. Additionally, the City requests that all ADU applicants fill out an affordability survey to identify how the ADU is intended to be used. The vast majority of ADU surveys submitted in Yorba Linda demonstrate that these units are being utilized to provide for intergenerational housing within the family.
Given these characteristics and Yorba Linda’s growing track record in providing ADUs, combined with the additional incentives of fee waivers, pre-approved plans, ADU promotion and outreach, and potential ADU development assistance program for rent-restricted units, the sites inventory projects a minimum of 50 new ADUs to be produced annually, or 400 over the 2021-2029 planning period. The projected affordability of these ADUs is based on SCAGs Regional Accessory Dwelling Unit Affordability Analysis (December 2020). The City will annually monitor ADU production and affordability as part of the Annual Performance Report (APR) on the Housing Element, and conduct reviews in 2024, 2026 and 2028 to evaluate if ADU production levels are being achieved. If ADU production is falling short, the City will ensure adequate sites are available to address the lower income RHNA, or will commit to rezoning additional sites within one year (as necessary) to offset any shortfall.
4. Sites for Rezoning
Government Code section 65583.2(h) requires sites that are identified for rezoning to accommodate a lower income RHNA shortfall fulfill the following requirements:
• Permit owner-occupied and rental multifamily uses by right for developments in which 20 percent or more of the units are affordable to lower income households. • Permit the development of at least 16 units per site. • Ensure sites permit a minimum of 20 dwelling units per acre. • Ensure a) at least 50% of the shortfall of low- and very low-income regional housing need can be accommodated on sites designated for exclusively residential uses, or b) if accommodating more than 50% of the low- and very low-income regional housing need on sites designated for mixed-uses, all sites designated for mixed-uses must allow 100% residential use and require residential use to occupy at least 50 percent of the floor area in a mixed-use project.
A rezone program has been included in the Housing Element (Program #8) to fulfill the above requirements. As presented in Table IV-2, the City has identified a total of 27 Opportunity Sites for rezoning to accommodate the RHNA growth for Yorba Linda. More than half of Yorba Linda’s shortfall in its lower income RHNA will be accommodated on sites designated for exclusively residential use, therefore the City will not be subject to requirements to allow 100 percent residential on mixed use sites.
A more detailed table and photo exhibits of the Opportunity Sites identified for rezoning is presented in Appendix C to the Element. As a means of documenting how these sites can
2021-2029 HOUSING ELEMENT IV-7 HOUSING RESOURCES
realistically be assembled and developed during the planning period, a narrative description of factors supporting development has been prepared for each of the sites. This analysis further details existing conditions, including the presence of economically marginal uses, underutilized parking lots, common ownership of adjacent parcels, and City owned parcels, as well as where there has been recent property owner interest in upzoning and development on the sites.
2021-2029 HOUSING ELEMENT IV-8 HOUSING RESOURCES
Table IV- 2: Housing Element Rezone Sites
Site
ID Site Description and Address Acres Current Zoning
Proposed
Zoning
Action
Total
Net Unit
Potential
Realistic
Unit
Potential
Affordable Housing Overlay (AHO) Sites – up to 35 units/acre S1-
200 SEC Rose Dr/Blake Rd 5.94 RE RM-20 with AHO 208 178 S3-
207 5300-5392 Richfield Rd 9.7 RU RM-20 with AHO 340 291 S3-
074
Yorba Linda Preschool
18132 Yorba Linda Blvd 0.42 CG RM-20 with AHO 15 13
S3-
082 4791 and 4811 Eureka Ave 1.75 CG RM-20 with AHO 61 53 S4-
075 4742 Plumosa Drive 1.62 CG RM-20 with AHO 57 48
S6-
015
Prior John Force Racing
22722 Old Canal Road 2.56 PD PDwith AHO 89 77
S6-
020
Extended Stay America
22711 Oak Crest Circle 10.35 PD PDwith AHO 143 122
Realistic Unit Potential on AHO Sites: 782
Congregational Land Overlay (CLO) Sites – up to 35 units/acre S2-
008
Friendship Baptist Church
17151 Bastanchury Rd
4.92 (2.01 developable) RE RE with CLO 60 60
S3-
012
Richfield Community Church
5320 Richfield Rd
9.48 (3.7 developable) RU RU with CLO 55 55
S2-
013
Messiah Lutheran Church 4861
Liverpool St
6.2 (2.03 developable) RU RU with CLO 40 40
S3-
024
Friends Church Overflow Parking 17.45
(1.61 developable) RE RE with CLO 48 48
S4-
204A
Chabad Center
19045 Yorba Linda Blvd
1.85 (0.93 developable) RE RE with CLO 17 17
S3-
033
Islamic Center of Yorba Linda
4382 Eureka Ave
3.88 (1.58 developable) RS RS with CLO 30 30
S3-
210
Shinnyo-En USA
18021-18111 Bastanchury Rd
9.23 (4.09 developable) PD-26 PD-26 with CLO 105 105
Realistic Unit Potential on CLO Sites: 355
Mixed Use Overlay (MUO) Sites – up to 35 units/acre
S1-
021
Vacant Parcel (W of 16951
Imperial Hwy)
APN 322-121-07
1.76 CG-(I) CG-(I)
with MUO 62 53
S7-
001
Bryant Ranch Shopping Center
23611-23801 La Palma Ave 9.15 CG CG withMUO 320 272
Realistic Unit Potential on MUO Sites: 325
RM-20 – up to 20 units/acre
S4-
200 18597-18602 Altrudy Lane 2.0 RS RM-20 40 40
S4-
204B 19081-19111 Yorba Linda Blvd 3.90 RE RM 78 66
Realistic Unit Potential on RM-20 Sites: 106
2021-2029 HOUSING ELEMENT IV-9 HOUSING RESOURCES
Table IV- 2: Housing Element Rezone Sites (cont’d)
Site
ID Site Description and Address Acres Current Zoning
Proposed
Zoning
Action
Total
Net Unit
Potential
Realistic
Unit
Potential
RM – up to 10 units/acre
S3-
034 4341 Eureka Avenue 2.19 RS RM 22 19
S3-
205A 5225-5227 Highland Ave 7.08 RE RM 71 60
S3-
211 17651 Imperial Highway 2.32 RS RM 23 20
S4-
053
SWC Kellogg Dr/
Grandview Ave 0.98 RE RM 10 9
S4-
060 5541 South Ohio St 0.96 RE RM 10 9
S4-
201 5531 South Ohio St 1.82 RE RM 18 15
S5-
008 Fairmont Blvd 23.01 PD RM 230 196
S7-
005
NWC Camino de Bryant/
Meadowland 3.06 RU RM 30 10
Realistic Unit Potential on RM Sites: 338
PD
S3-
203 18101-19251 Bastanchury 22.83 PD PD 228 194
Realistic Unit Potential on PD Sites: 194
Realistic Potential on all Opportunity Sites: 2,100
A key tenet of Yorba Linda’s approach to providing sites to address its lower income housing needs will be through the creation of several new Housing Overlay zones: an Affordable Housing Overlay, a Mixed-Use Housing Overlay, and a Congregational Land Overlay. The contracted with an urban design consultant to conduct site visits and create site development concepts as a foundation for establishing recommended development standards for each of the overlay zones such as height limits, parking requirements, setbacks and transitional height requirements. While this detailed work is currently in process, the following summarizes the basic parameters of each of the overlay zones.
Affordable Housing Overlay: As part of the Housing Element sites inventory, the City has identified six sites for rezoning to RM-20, and one to maintain its PD zoning, and designation with an Affordable Housing Overlay (AHO). The overlay would layer on top of the base zoning regulations, leaving in place the option to develop under the base zoning, but providing the opportunity to develop to a greater intensity, and in the case of the commercial and industrial sites, the opportunity to develop with a higher value residential use, without a General Plan amendment or zone change.
The AHO would provide the following incentives in exchange for providing 20% affordable units (10% very low and 10% low income) on these sites:
• Ministerial review
2021-2029 HOUSING ELEMENT IV-10 HOUSING RESOURCES
• Increased densities
• Increased height limits
• Increased floor area ratios
• Reduced project-specific open space standards
As an additional incentive, developers can access state density bonus law, including by right alternative parking standards, in addition to using the densities allowed in the Overlay. In order to encourage lot consolidation for sites with multiple parcels, the City will structure the Overlay with tiered incentives for larger lot sizes.
Congregational Land Overlay: Yorba Linda contains 25 religious congregations that practice various forms of the Christian, Jewish, Muslim and Buddhist religions. Most of the City’s congregations date from the 1970’s or later during a period of suburban growth, and many possess large land resources. All but two of the Yorba Linda’s congregations have more than one acre of land, and eight (32%) have over five acres. These congregations typically have large parking lots which are sized for full occupancy of sanctuaries. Congregations which are not at full capacity likely have unused parking areas. Some also have buildings which are nearing the end of their functional life and are candidates for turnover to other uses. The COVID-19 pandemic has also affected these congregations in manners which are not entirely clear at this point. Conversations with church leaders revealed that attendance ranged from 30-80% of pre-pandemic levels. It is possible that the pandemic will permanently decrease regular attendance at services, as sometimes-tenuous connections with other church members have faded and people make greater use of online services.
Within this context, affordable housing development can be an attractive option for congregations to off-load excess land, use proceeds to support existing ministries, and live out their mission to love thy neighbor. Many local and state governments, including California’s, are seeking to promote this type of development, not only for the reasons mentioned above, but because religious-use parking spaces are among the least utilized spaces in urbanized areas being typically used to their maximum capacity only once a week.
As the affordable housing crisis and homelessness continues to worsen, more and more congregations and faith-based groups have sought ways to provide housing for those most in need. In Making Housing Happen: Faith-Based Affordable Housing Models,14 Dr Jill Shook presents a range of case studies of how congregations across the country are successfully providing affordable housing through a variety of models: land lease of church properties; adaptive reuse of church buildings; community land trusts, and more. The Congregational Land Subcommittee15 in Pasadena indicates they are continuing to see more and more examples of congregations partnering with non-profit developers to provide affordable housing on excess land, several of which are highlighted in Table IV-3 below:
14 Shook, J. (2012). Making Housing Happen: Faith-Based Affordable Housing Models (2nd ed). Wipf and Stock Publishers.
15 CONGREGATIONAL LAND | Making Housing and Community Happen | United States (makinghousinghappen.org)
2021-2029 HOUSING ELEMENT IV-11 HOUSING RESOURCES
Table IV-3: Examples of Housing on Congregational Land
Congregation # Housing Units Other Site Improvements Developer Project Status St. Joseph’s
Episcopal Church,
Buena Park
66 low income
senior units
New 3,000 sq.ft. community
center, common open space
National CORE Received planning
entitlements
Church of Blessed
Sacrament,
Placentia
65 low income
senior units
New Parish Hall,
improvements to church
facilities, community garden
National CORE Received planning
entitlements
Garden Grove
United Methodist
Church
47 very low/low
income family
and senior units
Space for community clinic
and other service agencies
Jamboree
Housing
Operational since
2015
Bethel AME, San
Diego
16 permanent
supportive
housing units
Yes in God’s
Backyard
(YIGBY)
Under Construction
New Life Holiness
Church,
Pasadena
52 very low/low
income family
units
Gangi
Development
Pursuing
entitlements
West Angeles
Church of God in
Christ, Los
Angeles
70 very low/low
income senior
units
Community retail space Related
Companies
Operational since
2020
First United
Methodist Church,
Los Angeles
66 low income
family units
Child care center 1010
Development
Operational since
2000s
Immanuel Church,
Long Beach
25 low income
senior units
Church closed Thomas Safran
& Associates
Operational since
late 2010s
Inglewood First
United Methodist
Church
64 low income
units for seniors/
local workforce
Adaptive reuse Berg Predevelopment
Source: The Arroyo Group, 2021.
City staff began reaching out to pastors and religious leaders in the community in the fall of 2020 to explore the concept of adding an affordable housing overlay to Yorba Linda’s religious sites. On January 26, 2021, staff hosted a virtual workshop for leaders of the 25 religious’ sites in Yorba Linda, and invited members of the Greater Pasadena Affordable Housing Group Congregational Land Subcommittee to discuss the process involved in developing affordable housing on their properties. Nearly 20 participants were in attendance, representing 12 different congregations, and participants were generally in favor of the affordable housing overlay concept. Staff and the design consultant have conducted numerous site visits and are in the process of drafting viable development standards for a Congregational Land Overlay Zone. Key features of the Overlay will include:
• Allowing congregations to decrease on-site parking and remove nonessential buildings in order to accommodate housing
• Requiring a minimum percentage and level of deed-restricted affordable housing • Ensuring that conversion of auxiliary congregational areas such as parking lots to housing will not require a discretionary approval process to amend the religious institution’s existing CUP
2021-2029 HOUSING ELEMENT IV-12 HOUSING RESOURCES
• Allowing congregations, in certain circumstances, to transfer their development rights under the Congregational Land Overlay to adjacent properties which have a lower density zoning
The Housing Element sites inventory has identified seven religious congregations as most viable for development within the planning period, though all congregations in Yorba Linda will be eligible to take advantage of the additional development rights conferred by the Overlay zone. The City’s urban design consultant determined the potential development area on each of the City’s religious congregations based on development of half the parking area (or the entire parking area for congregations smaller than 2.5 acres), along with any available vacant land. Development potential was calculated using a base density of 30 units/acre (though up to 35 units/acre will be permitted), with densities and building heights tapering down based on the adjacency of single-family zoned parcels. Table IV-4 shows the estimated development capacities on all 25 congregational sites in the City, with more refined analysis and site layouts conducted for the seven sites included the Housing Element sites inventory.
Table IV-4: Development Potential on Religious Congregation Sites Congregation Address
Site
Capacity
(units)
Max
Development
Area1
Parking
(ac)
Open
Space
(ac)
Total
Site
Acreage
1st Church of Christ
Science 18341 Lemon Drive 4 0.11 0.11 - 0.28
Agape Christian
Church of OC 4572 Rose Drive 31 1.05 1.05 - 2.44
Calvary Chapel of
Yorba Linda
18821 Yorba Linda Blvd
4982 Avocado Ave 21 0.69 1.38 - 7
Canyon Hills Friends
Church 20400 Fairmont Connector 18 0.59 1.17 - 4.73
Chabad Center2 19045 Yorba Linda Boulevard 17 0.93 0.35 0.58 1.85 Community Messiah
Lutheran2 4861 Liverpool Street 40 2.03 2.93 0.57 6.2
Faith Community
Church Nazarene
16800 Imperial Hwy
16892 Roxdale Drive
4032 Sesame Street 58 1.93 1.48 1.19 4.83
First Baptist Church
of Yorba Linda
4858 Main Street
4802 Main Street
18372 East Lemon Dr 19 0.63 0.35 0.28 2
Friends Church
Overflow Parking2
Adjacent
18132 Yorba Linda Blvd 48 1.61 1.61 0 17.45
Friendship Baptist
Church2 17141-17151 Bastanchury Rd 60 2.01 1.55 1.23 4.92 Grace Lutheran
Church 6550 Fairmont Blvd 29 0.98 1.01 0.48 3.15
Islamic Center of
Yorba Linda2 4382 Eureka Avenue 30 1.58 1.13 1.02 3.88
LDS Church 17142 Bastanchury Road 98 3.26 1.89 2.31 5.46 LDS Church 5550 Ohio Street 26 0.86 1.73 - 3.05
2021-2029 HOUSING ELEMENT IV-13 HOUSING RESOURCES
Congregation Address
Site
Capacity
(units)
Max
Development
Area1
Parking
(ac)
Open
Space
(ac)
Total
Site
Acreage
Pope John Paul II
Polish Center 16692 Golden Avenue 18 1.22 1.22 - 1.76
Richfield
Community Church2 5320 Richfield Road 55 3.70 4.46 1.47 9.48 Rose Drive Friends
Church
4221 Rose Drive
16611-16631 Bastanchury Rd 154 5.15 4.46 2.92 14.08
St Mary & St Verena
Coptic Orthodox 5401 Fairmont Blvd 20 0.68 0.68 0.34 3.18 Shinnyo-En USA2
18021 - 18111 Bastanchury
Road 105 4.09 2.92 2.63 9.23
St. Clara de Asis
Church 22005 Avenida de la Paz 116 3.87 3.26 2.24 15.23 St. Martin's De Porres
Church 19767 Yorba Linda Boulevard 37 1.22 1.99 0.23 3.95 The Church in Yorba
Linda 3812 N Rose Drive 19 0.64 0.64 - 0.45
The Danish Church
and Cultural Center 16881 Bastanchury Road 19 0.63 0.63 - 1.5 Yorba Linda
Methodist Church 19002 Yorba Linda Boulevard 44 1.46 1.54 0.69 4.78 Yorba Linda
Presbyterian Church 19301 Yorba Linda Boulevard 24 0.79 1.57 - 3.38 Total 1,110 41.71 41.11 18.18 134.26
1 Development area for congregations > 2.5 acres based on use of 50% of parking area + available open space. Development area for congregations with < 2.5 acres based on use of 100% of parking + available open space. 2 Congregation included in Housing Element sites inventory.
Mixed-Use Housing Overlay: The Mixed-Use Housing Overlay is designed to apply to two commercial properties where housing could benefit the existing or future retail use. It is currently being proposed for the nine-acre Bryant Ranch Shopping Center that has been struggling to maintain tenants and contains large areas of underutilized parking. The concept is to allow for a predominately residential development on this site, with a requirement to integrate a minimum of 10,000 square feet of neighborhood-serving commercial uses to service nearby neighborhoods. The Mixed-Use Overlay is also being proposed for a 1.75 acre vacant commercially zoned property on Imperial Highway. The overlay will allow development of at least three stories in height and 35 dwelling units per acre, and similar to the Affordable Housing Overlay, will require at least 20 percent affordable units Commercial floor area (FAR) will be separately regulated from residential density, so that the permitted residential density is not impacted by the inclusion of commercial square footage.
In terms of the likelihood of predominately commercial development occurring on these two Mixed Use Sites, the Mixed Use Overlay will require at least 50 percent of the square footage be dedicated to residential use. In addition, the real estate market in Yorba Linda favors residential over commercial uses, as evidenced by the prompt redevelopment of the seven non-residential 5th cycle Housing Element sites with housing (refer to Table IV-5), as well as strong property owner interest in redeveloping the Bryant Ranch shopping center as
2021-2029 HOUSING ELEMENT IV-14 HOUSING RESOURCES
predominately residential. Regional market trends further support the integration of residential on commercial sites, such as the proposed Brea Plaza project which would redevelop the commercial center’s surface parking area with 189 units, the Brea Mall project which proposes development of 383 apartments on 12 acres of surface parking, and the Streetlights at Fullerton which proposes integrating 329 units within the Fullerton Town Center.
Sites Inventory Methodology and Assumptions
This section describes the methodology and assumptions used to develop the Housing Element Adequate Sites Inventory (Appendix C). It provides justification for development on non-vacant sites and review of the factors used in estimating the realistic housing potential during the 2021-2029 planning period. The section concludes with a discussion of development on small and large sites, and use of sites from the prior Housing Element.
Suitability of Non-Vacant Sites: Because non-vacant sites comprise more than half of Yorba Linda’s site inventory, Government Code Section 65583.2(g)(2) requires that the City analyze the extent to which existing uses may constitute an impediment to additional residential development during the planning period of the housing element. As part of the resolution adopting the Housing Element, the City Council will make findings based on substantial evidence that the existing use is not an impediment and will likely discontinue during the planning period. These findings will be based on a variety of factors including development trends, property owner interest, structure age, property valuation, and development capacity.
Each of the opportunity sites was selected based on a combination of factors rendering it suitable and likely to redevelop during the planning period. These factors include: physical underutilization of the site; economic obsolescence of the existing use (as measured by an improvement-to-land value ratio of < 1.0); dilapidated condition of the existing use; developer and/or property owner interest in development. The sites inventory spreadsheet in Appendix C details these factors for each site, supplemented by a photo exhibit of each site describing various factors that support development.
Yorba Linda has a strong track record in redesignating non-vacant residential and commercial properties for residential development. In order to provide adequate sites for its 4th cycle, 2008-2014 Housing Element, the City rezoned 14 sites RM-10, RM-20 and RM-30. As discussed earlier in this chapter, all but one of these sites has since been developed or is in the process of being developed, and the property owner of the last remaining site is now interested in moving forward with development.
Table IV-5 presents residential development trends in Yorba Linda under the 5th cycle Housing Element and documents that the majority of development involves redevelopment of existing uses. The market for residential development in Yorba Linda is robust, as evidenced by development on all its prior Housing Element sites. The creation of various zoning overlays with regulatory incentives and by-right development opportunities will render the 6th cycle Housing Element sites all the more attractive for development.
2021-2029 HOUSING ELEMENT IV-15 HOUSING RESOURCES
Table IV-5
Yorba Linda Development Projects and Trends
Housing
Element
Site
No.
Site
Description/
Location
Prior
Zoning
Prior Land
Use(s) Acres
Max.
Buildout
Potential
Actual Buildout
Status
%
Developed
to Max
Density
R-M-30 Sites
3 Yorba
Linda/Prospect
Commercial
General
Large Medical
Office
Complex
4.08 acres
122 units 80-unit, 3-story
townhome project
by DR Horton
66%
4 Bastanchury &
Lakeview
(middle parcel)
RE and RS Commercial
Nursery
8.51 acres
248 units
(between
sites 4 &
12 which
merged)
Merged with Site 12
for 192-unit
townhome project by
Melia Homes and
Lennar Homes.
77%
5 Old Canal Road
Annex
Savi Ranch
PD/
Office
Commercial
Vacant
Manufacturing
Industrial
2.8 acres
84 units 54-unit, 3-story
townhome project by
National Core
64%
6 Mitsubishi
Motors Site
Savi Ranch
PD/
Office
Commercial
Underutilized
Manufacturing
Industrial
3.2 acres
96 units 69-unit, 3-story
townhome project by
National Core
72%
14 Lakeview &
Mariposa
APN# 343-671-
01, 02,03,04,05
RE (1.8
du/ac)
Former
Oil Field
4.98 acres
149 units Entitled for Senior
Apartments by
ETCO Homes with
82 units of
independent living,
76 units of assisted
living and 82
memory care beds.
106%
R-M-20 Sites
7 Lakeview/
Strawberry-Field
Commercial
General
3 SFRs and
Agriculture
4.7 acres
94 units New City Library Site NA
8 Lakeview/
Altrudy
RS (3.0
du/ac)
Vacant 2.4
acres
48 units 48-unit, 1- and 2-
story senior
apartment project by
C&C Development/
Orange Housing
100%
NA 18602 Altrudy TCSP 2 single-family
homes
2.0 acres
40 units Pending Measure B
election
100%
R-M-10 Sites
1 Prospect
(Greenhouse)
Commercial
General
Large
Commercial
Greenhouse/
Agricultural
Facility
5.5 acres
55 units 48-unit, 2-story
townhome project by
Pulte Homes
87%
2 Wabash & Rose Commercial
General
3 SFRs plus
RV storage
and repair
facility
1.85 acres
18 units 18-unit, 2-story
townhome project by
City Ventures
100%
2021-2029 HOUSING ELEMENT IV-16 HOUSING RESOURCES
Table IV-5
Yorba Linda Development Projects and Trends
Housing
Element
Site
No.
Site
Description/
Location
Prior
Zoning
Prior Land
Use(s) Acres
Max.
Buildout
Potential
Actual Buildout
Status
%
Developed
to Max
Density
9 Bastanchury &
Lakeview
(eastern parcel)
RE (1.8
du/ac) and
RS (3.0
du/ac
2 SFRs plus
commercial
equestrian
stable and
riding
academy
4.08 acres
40 units 40-unit, 2-story
paired home project
by Melia Homes
100%
11 Nixon Archive RE 5 SFRs 5.9
acres
59 units 51-unit, 2-story
townhome project by
Brandywine Homes
86%
12 Bastanchury &
Lakeview
(western parcel)
RE and RS Commercial
Nursery
8.51 acres
248 units
(between
sites 4 &
12 which
merged)
Merged with Site 4
for 192-unit
townhome project by
Melia Homes and
Lennar Homes.
77%
Average Developed Density to Maximum Density 85.8%
1 The project's entitlements classify it as a Community Care Facility which is not regulated by density.
In addition to the development trends supporting redevelopment presented in Table IV-5, Appendix C includes a detailed narrative describing the factors supporting redevelopment of each opportunity site and provides evidence that the existing use does not serve as an impediment to residential development over the next eight years. It shows that there is interest among the current property owners and developers for residential projects in the highly-sought after Yorba Linda community.
Realistic Development Capacity Analysis
As required by Housing Element statute, local governments must analyze available sites based on their realistic residential development capacity. In other words, the development density that can actually be achieved on a site might be less than the maximum residential densities permitted by the underlying General Plan land use and Zoning. Therefore, to establish realistic capacity, jurisdictions must consider cumulative development standards such as maximum lot coverage, height, open space, parking, on-site improvements (sidewalks or easements), and floor area ratios in the calculations.
As discussed earlier in the Governmental Constraints chapter (see Land Use Controls), the City’s urban design consultant conducted “density testing” in conjunction with creation of the City’s new RM 10, RM 20 and RM 30 development standards to ensure cumulative standards supported development at the top end of the density range. As shown in Table IV-5, while several projects have developed at 100% of the maximum permitted density, on average, recent projects in Yorba Linda have developed to 85.8% of the maximum permitted density under zoning. Development capacities for Housing Element sites have thus been adjusted downwards to 85% of total capacity under zoning, despite development standards that facilitate achievement of 100% of permitted densities.