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HomeMy WebLinkAboutMINUTES - 09262006 - D.5 TO: BOARD OF SUPERVISORS Contra •FROM: DENNIS M. BARRY, AICP 's Costa COMMUNITY DEVELOPMENT DIRECTOR " %'' County n•.. J DATE: SEPTEMBER 19, 2006 SUBJECT: HEARING ON A GENERAL PLAN AMENDMENT FROM SINGLE FAMILY RESIDENTIAL - MEDIUM DENSITY TO SINGLE FAMILY RESIDENTIAL - HIGH DENSITY, A REZONING FROM R-6, SINGLE FAMILY RESIDENTIAL DISTRICT AND R-10, SINGLE FAMILY RESIDENTIAL DISTRICT TO P-1, PLANNED UNIT DISTRICT AND APPROVAL OF A FINAL DEVELOPMENT PLAN. THE 4.6 ACRE SITE IS LOCATED SOUTH OF OLYMPIC BOULEVARD AND EAST OF INTERSTATE 680 IN THE WALNUT CREEK AREA. BNB VENTURES, LLC (APPLICANT) & J.VUICH & BNB VENTURES (OWNERS). (COUNTY FILES: #GP04-0009, RZ04-3153 AND DP04-3119) (DISTRICT III) SPECIFIC REQUEST(S) OR RECOMMENDATION(S) & BACKGROUND AND JUSTIFICATION 1. RECOMMENDATIONS A. OPEN the pubic hearing and take testimony on the project. B. CLOSE the public hearing. C. FIND the Mitigated Negative Declaration prepared for this project to be adequate for the purposes of compliance with the California Environmental Quality Act (CEQA), and ADOPT the Mitigated Negative Declaration and the Mitigation Monitoring Program. *CONTINUED ON ATTACHMENT: X YES SIGNATURE RECOMMENDATION OF COUNTY ADMINISTRATOR RECOMMENDATION OF BOARD COMMITTEE APPROVE OTHER SIGNATURE(S): ACTION OF BOARD O aZAPPROVED AS RECOMMENDED OTHER/ Lir VOTE OF SUPERVISORS I HEREBY CERTIFY THAT THIS IS A TRUE AND _UNANIMOUS(ABSENTS CORRECT COPY OF AN ACTION TAKEN AND ENTERED AYES: NOES: ON THE MINUTES OF THE BOARD OF SUPERVISORS ABSENT: ABSTAIN: ON THE DATE SHOWN Contact:John Oborne(925)335-1207 ATTESTE - Orig: Community Development Department JOHN C CLERK OF THE BOARD OF cc: J.Vuich (Owner) SUPERVISO S AND COUNTY ADMINISTRATOR BNB Ventures, LLC(Owner&Applicant) City of Walnut Creek • County Administrator's Office Clerk of the Board B , DEPUTY County Counsel Public Works Department File September 19, 2006 Board of Supervisors • File#GP04-0009, RZ04-3153 and DP04-3119 Page 2 D. ACCEPT the recommendation of the County Planning Commission (CPC), as contained in its Resolution No. 15-2006, which is attached as Exhibit#2. E. ADOPT the General Plan Amendment (County File #GP04-0009), including the change to the Land Use Element Map as recommended in CPC Resolution No. 15-2006 and as illustrated on Exhibit 8A, as the second Consolidated General Plan Amendment in 2006. F. ADOPT the Rezoning (County File #RZ04-3153) from R-6, Single Family Residential and R-10, Single Family Residential to P-1 Planned Unit District with a variance to allow application of the P-1 District for a residential development involving less than 5 acres, as recommended in CPC Resolution No. 15-2006 and illustrated on Exhibit 8B and APPROVE the Final Development Plan Amendment (County File #DP04-3119), with conditions as shown in Exhibit 3, which includes a new condition requested by the City of Walnut Creek informing the future property owners of a potential trail to the north of the site. G. ADOPT Ordinance No. 2006-26 giving effect to the aforementioned Rezoning. H. ADOPT the findings as contained in proposed Board Resolution No. 2006/392 as the basis for the Board's action, which is attached as Exhibit 1. I. DIRECT the Community Development Department to post the Notice of Determination with the County Clerk. II. FISCAL IMPACT None. The applicant is responsible for application processing costs. III. PROPOSED PROJECT • The applicant requests approval of: A. General Plan Amendment: The project site currently has two general plan designations, Single- Family Residential-Medium Density (SM) and Open Space (OS). The OS designation follows Las Trampas Creek along the eastern and southern boundaries of the site, while the SM designation is extended over the remainder of the site. The applicant requests approval of a General Plan amendment that changes the Single-Family Residential-Medium Density designation to Single-Family Residential High Density (SH). The OS designation will remain in place. See Exhibit 8A. B. Rezoning: The applicant is requesting approval of a rezoning application that would change the zoning of the site from R-6, Single-Family Residential and R-10, Single-Family Residential Districts to P-1, Planned Unit District with a variance to allow application of the P-1 district for a residential development involving less than five acres. See Exhibit 8B. C. Development Plan Approval: An application for approval of a final development plan to construct 22 single-family residences in two phases. See Exhibit 8C. IV. BACKROUND & REASON FOR RECOMMENDING APPROVAL A. General Plan Amendment The subject parcels, Assessor Parcel Nos. 184-100-030,028,007,008 & 032, totaling 4.6 acres, are currently designated Single Family Residential-Medium Density (SM) and Open Space (OS) under the Land Use Element Map to the Contra Costa County General Plan (2005-2020). Assessor Parcel No. 184-100-032 (approximately 1 acre) was once located within the September 19,2006 • Board of Supervisors File#GP04-0009, RZ04-3153 and DP04-3119 Page 3 incorporated city limits of Walnut Creek and was physically separated from the city limits as a result of the freeway widening and improvements for the I-680/State Route 24 Interchange. This land area was then subsequently detached (or de-annexed) from the Walnut Creek City Limits by Contra Costa LAFCO in 1995 and the County assumed land use jurisdiction for this land area. The subject parcels along Paulson Lane each contain residences built either in the 1930's or the 1950's. These parcels were originally sized as large lots based on a semi-rural residential development pattern common to the Walnut Creek area during the 1930's-1950's. Paulson Lane was significantly altered by.the 1-680/24 Interchange Project, which was completed in the mid- 1990's. What remains today is an island of unincorporated land area bounded by the 1-680 freeway on the north, Las Trampas Creek on the east and south, and Olympic Boulevard to the west. The Paulson Lane area is predominantly designated as Single-Family Residential-Medium Density under the General Plan, and has a zoning that is split between R-6 and R-10. BNB Venture, LLC is seeking to redevelop Paulson Lane into a planned unit development with 22 single family residences. This development proposal would require a General Plan Amendment to re-designate a portion of the project site to Single-Family Residential High Density in order to accommodate a proposed density of 6.4 units per net acre, and a corresponding rezoning to the County's P-1, Planned Unit District. The request for a General Plan Amendment and rezoning is reasonable given that the • redevelopment of Paulson Lane into a planned unit development provides an opportunity for infill residential development in an unincorporated area adjacent to downtown Walnut Creek, and provides a public benefit of more housing in close proximity to downtown Walnut Creek. B. Rezoning The subject property is surrounded on the east, south and west by several zoning districts including R-6 (Single-Family Residential, 6,000 square feet minimum lot size), R-10 (Single- Family Residential, 10,000 square feet minimum lot size), and P-1 (Planned Unit District). To the north of the site is the 1-680/24 freeway interchange and downtown Walnut Creek. The 4.6 acre project site is made up of five contiguous parcels. Four of them are zoned R-6 single-family residential, and the remaining parcel is zoned R-10 single-family residential. The applicant is proposing to rezone the project site from R-6 and R-10 to Planned Unit District (P-1), with a variance to allow application of the P-1 district for a residential development involving less than five acres. Adoption of this rezoning (and approval of the accompanying Final Development Plan) would benefit the public by eliminating the possibility of piecemeal development across these five parcels. The entire project would be subject to the same design guidelines and conditions of approval, which would result in a cohesive development. C. Final Development Plan • The applicant proposes development of project site into a 22 lot residential subdivision in two phases. As part of the Development Plan, a sidewalk is planned from the project site down to Olympic Boulevard to encourage walking to downtown Walnut Creek. The applicant proposes to September 19, 2006 Board of Supervisors • File#GP04-0009, RZ04-3153 and DP04-3119 Page 4 plant 214 trees across the site to replace the 98 trees proposed for removal. The proposed homes are from approximately 2375 square feet to 2485 square feet in size. D. County Planning Commission Hearing The County Planning Commission held a public hearing to consider the proposed project on May 9, 2006. At the hearing several members of the public and a representative from the City of Walnut Creek commented on various aspects of the proposed project including noise from the freeway, trees that are proposed for removal and a proposed trail alignment through a portion of the project site. After evaluating the project in its entirety, including all pubic testimony and evidence in the record, the Commission unanimously voted to approve the subdivision portion of the project and to recommend the Board approve the General Plan Amendment, Rezoning and the Final Development portions. City of Walnut Creek's Request for Trail Alignment through a Portion of the Site The City of Walnut Creek requested that a portion of the project site be dedicated for a trail alignment. A portion of the site that is located along the adjacent Las Trampas creek is identified in the Walnut Creek - Creek Restoration and Trails Master Plan. The Creek Restoration and Trails Master Plan, identifies a "future extension of main creek trail" as passing through the project site at the top of creek bank. A representative from the City of Walnut Creek submitted a letter to the County Planning Commission (attached in Exhibit 6 — Pertinent Correspondence) that requested that the Commission only approve this project if an extension of the proposed trail and/or right-of-way dedication is included as a condition of approval. Staff Response While the County General Plan and other County plans encourage the development of trails in the unincorporated area, staff could not recommend that a creek side trail be conditioned for development on this site for the following reasons: 1. No Policy Basis In County General Plan To Impose Trail Requirement At This Location The future trail connection that is shown in the City's Creek Restoration and Trail Master Plan is not identified in any County planning document, including the County General Plan (2005-2020). The County is obligated by law to rely on policies in its own General Plan, or other plans to which it is a party, as the basis upon which it requires dedications of easements for trail corridors. 2. No Trail Alignment or Feasibility Studies At This Location In addition to the question of whether there is policy basis under the County General Plan to require a trail dedication on the property, a trail right-of-way dedication on private property is typically secured by the County following a thorough evaluation of the trail's potential feasibility and alignment on the property, and consideration of the proposed trail section location in overall relationship to the trail network or system that is being developed. The County has not prepared trail alignment or feasibility studies for this location because as noted above it is not identified in any County plans for a future trail. To our knowledge the September 19, 2006 • Board of Supervisors File#GP04-0009, RZ04-3153 and DP04-3119 Page 5 City of Walnut Creek has not completed or commissioned a study as to the feasibility or alignment of a trail along side Las Trampas creek for any portion of the properties near Paulson Lane. Absent trail feasibility or alignment studies for this location, it is not possible to establish where or how to align a trail on the development site. 3. Lack of Trail Alignment or Feasibility Studies Imposes An Undue Burden On Development Staff believes that conditioning a trail on the development site without any supporting trail alignment or feasibility studies imposes an undue and potentially substantial burden on the development. The County would essentially be requiring the developer to reserve an area for a trail, but at this time we are unable to tell the developer how, when, or where the trail would be built on the development site. This seems on its face to be an unreasonable imposition that would cause uncertainty and impede the orderly development of this infill residential site. 4. No Nexus Relationship Has Been Established In written comments submitted to County Planning Commission, staff from the City of Walnut Creek have advanced the view that since the General Plan Amendment is a legislative act the Board of Supervisors has broad discretionary authority to impose the condition for a trail on the development site. While it may be true that the Board has more discretionary authority involving a legislative act, such as General Plan Amendment, this does not relieve the Board from establishing a nexus relationship between the request to amend the General Plan and the proposed action to impose a condition for a trail running through the development site. As noted above, the lack of any trail alignment or feasibility studies for a creek trail suggests to staff that the foundation or evidence to establish a nexus relationship is rather tenuous. 5. County Public Works/Flood Control District Concerns Staffs from the County Public Works and Flood Control District have identified serious concerns or reservations with locating a trail along Las Trampas Creek as envisioned by the City of Walnut Creek. First, aligning the trail on the top of the creek bank may encroach into the creek setback area. Since the Board has established a firm policy of not granting any exceptions to the creek setback requirements, this would mean that the trail would have to be re-aligned out of the setback area and placed further into the area identified for residential development. This would likely eliminate 11 of the proposed lots. Second, the creek bank in this location is very steep, sloping at 90% with a vertical drop up to 40 feet, and the soil is unstable with susceptibility to erosion during heavy rains. This raises concerns about the long term maintenance and safety for a trail along the creek in this section. Third, aligning the trail along Las Trampas Creek to connect at Olympic Boulevard presents an engineering challenge because of the topography where it slopes down toward Olympic Boulevard. Fourth, based on their observation it does not appear that there is sufficient vertical clearance for a creek trail under the 1-680 freeway without extensive excavation, which may not only affect flood control facilities in the creek downstream, but would also involve Caltrans approval and potentially other Agencies (e.g. streambed alteration permit) for approval as well. Lastly, it is unclear who (the. County or the City) would be responsible for • the maintenance and liability of a creek side trail that traverses through the unincorporated area. September 19, 2006 Board of Supervisors • File#GP04-0009, RZ04-3153 and DP04-3119 Page 6 6. Public Testimony From Neighbors A majority of the neighbors in the immediate vicinity of the development site testified at the County Planning Commission hearing that they did not support aligning a trail along the top of the creek bank because of privacy and safety reasons. Trail Alignment Alternative As an alternative to the creek side trail, the County Planning Commission recommended that the developer work to implement a trail that instead follows the Caltrans owned right-of-way next to the 1-680 freeway sound wall in a northwesterly direction after it comes under the freeway .instead of following a southerly alignment through the site along the creek. This alternative alignment could accomplish a trail connection from downtown Walnut Creek to Olympic Boulevard without imposing an undue and potentially substantial burden on the Paulson Lane development (refer to condition 1013). At the August 1, 2006 Board of Supervisor's meeting the item was continued at the request of Supervisor Piepho to the Board's September 19, 2006 meeting. The purpose of the continuation was to allow-for a meeting with the City of Walnut Creek and other interested parties to discuss the concerns raised by the City over the alignment of a proposed trail through the site. On August 22, 2006 a meeting on trail alignment options was held at the City of Walnut Creek with Supervisor Piepho, City Staff, County Staff, the applicant, .and other interested parties. A broad range of topics was discussed. A subsequent meeting was held at the County on September 13, 2006 with Supervisor Piepho, the Mayor of Walnut Creek, Kathy Hicks, City and County staff. Various topics were discussed regarding the potential alignment of a trail along the Caltrans right-of-way. In this regard the City recommended, and the County concurred, that there should be a deed disclosure on the affected lots that a potential trail easement is located along their rear yards. This has been added to the Conditions of Approval as # 10 C. Other proposed potential requirements were discussed that require additional staff follow-up and will be reported as part of the staff presentation on this item at the September 19, 2006 Board of Supervisors hearing. EXHIBITS 1. Board Resolution No. 2006/392 and Rezoning Ordinance No. 2006-26 2. County Planning Commission Resolution No. 15-2006 3. Conditions of Approval 4. CEQA determination 5. May 9, 2006 Staff Report to County Planning Commission 6. Pertinent Correspondence 7. Notification List • 8. Maps and Plans GNAd—a P1m 1i.91.&-pW\Gataal PI.,Amrndinmts\gpG4.OOO9PaulsonlnGPAl5DO48939boardordaprmirm9-19.dm D.5 09-26-06 ADDENDUM The Board proceeded with the continued hearing on the County Planning Commission recommendation for a General Plan Amendment, (from Single Family Medium to Single Family High density residential) a rezoning from Single Family Residential (R-6 and R-10) to Planned Unit District (P-1) and a Preliminary and Final Development Plan for 22 single-family residential units on 4.6 acres located at #121 through #161 Paulson Lane in the Walnut Creek area. Catherine Kutsuris, Community Development Department, presented the staff report. The Board, by unanimous vote, accepted supplemental report pertaining to the propsed trail connection. The Chair invited the public to comment. The following people spoke: Lesley Hunt, Friends of the Creeks; Bob Walsh, resident of Pleasanton, Sandra Meyer, City of Walnut Creek; Kathy Hicks, Mayor of Walnut Creek; Troi Nelson, resident of Walnut Creek; Steve Nelson, resident of Walnut Creek; Nancy Vuich, property owner; Tracy Westerlund-Phillips, resident of Walnut Creek; Francine Podenski, Park-mead Community Association; Chair Gioia returned the matter to the Board. Exhibit B (of the supplemental report) Proposed Additional Conditions of Approval relating to Trail Connection was amended as shown below: #IOD The developer shall contribute $25,000 to the City of Walnut Creek for the purpose of creek and/or trails planning. This contribution shall be paid concurrent with the recording of the Final Map" -a;aa is contingent upon com (Insert to Park Dedication& Trail Conditions, Page 4, Conditions ofApprovab #IOE "This project approval envisions the use of the Caltrnas property to the north of the site for a public access trail which is consistent with Clatranss property in the vicinity. The developer shall work cooperatively with the County to attmept of gain Caltrans approval to use the area for a public trail. The City of Walnut Creek has agreed to asist in this effort. In the event that,within six months of the effective date of this permit, Caltrans does not agree to the utilization of the land to the north(the Caltrans property)of the site for a public access trail,the applicant has agreed to grant to the City of Walnut Creek ten feet along the north boundary of the project site for the future development of a trail to allow a connection with the City of Walnut Creek's trail which would run along the creek under Interstate 680. This dedication of ten feet alnog the north property line would be subject to the follwing conditions: A. The City of Walnut Creek provides to the Zoning Aministrator for review and approval a letter from Caltrans that affirms that agency would not preclude an agreement to allow public access under Interstate 680 along the creek,or adjacent public access on the west side of Interstate 680(beginning from Newall Avenue to the eastern terminus of the subject site); B. The City of Walnut Creek affirms that they will accept fee title to the ten foot strip along the north property line for the future development of a trail; If both Condition A and B are not deemed to be fulfilled by the County Zoning Administrator within six months of the effective date of this permit, then the requirement to dedicate the ten feet to the City of Walnut Creek is no longer required and said ten feet will be incorporated back into the adjacent lots. It is recognized that the dedication of the ten feet requires a reduction of the shared parking spaces, as well as minor adjustments in the configuration of the development plan, which will require the review and approval of the Zoning Administrator to ensure consistency with the conditions herein. The relocation of the parking spaces to the south side of"B" Street requires the review by a certified arborist to ensure the long term viability of Trees #429 and #430. If the long term viability is impaired by the relocation of the parking spaces,the parking spaces will be eliminated." (Insert to Park Dedication& Trail Conditions, Page 4, Conditions of Approval) By unanimous vote, with all Supervisors present, the Board APPROVED the recommendations, with the additional Conditions of Approval, as noted above. FindingsMap R-6, Rezone From R-10 To P-0 Walnut Creek Area I, D_ Snyder Chair of the Contra Costa County Planning Commission,State of California,do hereby certify that this is a true and correct copy of onoe N-14 of the County's 2005 zoning mad, indicating thereon the decision of the Contra Costa County Planning Commission in the matter of BNB Ventures, LLC - R7043153 AT=. Secretary of the Contra Costa Cou my Planning Commission,Stateof Calif. Exhibit 1 Board Resolution No 2006/392 And Rezoning Ordinance No. 2006-26 THE BOARD OF SUPERVISORS OF THE COUNTY OF CONTRA COSTA • Adopted this Order on Tuesday, September 19, 2006, by the following vote: AYES: Uilkema,Piepho,DeSaulnier,Glover and Gioia NOES: Ncne ABSENT: None ABSTAIN: None RESOLUTION NO. 2006/392 SUBJECT: PAULSON LANE SUBDIVISION ) APPLICATION FOR APPROVAL.OF A GENERAL PLAN AMENDMENT . ) (COUNTY FILE #GP004-0009), A REZONING FROM R-6, SINGLE ) FAMILY RESIDENTIAL DISTRICT AND R-10, SINGLE ) FAMILY RESIDENTIAL DISTRICT ) TO P-1 PLANNED UNIT DISTRICT (COUNTY FILE#RZ04-3153), ) A PRELIMINARY AND FINAL DEVELOPMENT PLAN ) (COUNTY FILE#DP04-3119) IN THE WALNUT CREEK AREA, DIST. III ) WHEREAS, BNB Ventures, LLC (Applicant) & BNB Ventures & J.Vuich (Applicant & Owners) proposed development of 4.6 acres in the unincorporated Walnut Creek area of Contra Costa County comprised of five parcels with Assessor Parcel Numbers 184-100-030,028,007 & 008 (together the "Subject Site"), for which an application was received by the Community Development Department on December 16, 2004; and WHEREAS, for purposes of compliance with the provisions of the California Environmental Quality Act (CEQA) and the State and County CEQA Guidelines, a report dated August 2005 titled " CEQA Initial Study / Mitigated Negative Declaration, Paulson Lane Subdivision" was prepared to determine whether an environmental impact report should be prepared for the Project; and WHEREAS, the Initial Study identified potentially significant impacts related to aesthetics, air quality, biological resources, cultural resources, geology and soils, hydrology, noise, and the Initial Study recommended mitigation measures which would reduce each identified impact to a less than significant level; and WHEREAS, on March 15, 2006 the County published a Notice of Public Review and • Intent to Adopt a Proposed Mitigated Negative Declaration, which Notice recited the foregoing facts, indicated that the Applicant had agreed to accept each mitigation measure recommended • by the Initial Study and started a period for public comments on adequacy of the environmental documents related to the Project that ultimately ran to April 14, 2006; and WHEREAS, after notice having been lawfully given, a public hearing was scheduled before the County Planning Commission on Tuesday, May 9, 2006, during which the Commission fully reviewed, considered and evaluated all the testimony and evidence submitted in this matter and forwarded a recommendation to the Board of Supervisors to approve the project as contained in its Resolution No. 15-2006; and WHEREAS, after notice having been lawfully given, a public hearing was scheduled before the Board of Supervisors on Tuesday, August 1, 2006, whereat all persons interested therein might appear and be heard; and WHEREAS, at the August 1, 2006'Board of Supervisor's meeting the item was continued at the request of Supervisor Mary Piepho (District III) to the Board's September 19, 2006 meeting. The purpose of the continuance was to meet with the City of Walnut Creek and other interested parties to discuss proposed trail alignment through the project site. NOW, THEREFORE, BE IT RESOLVED that the Board of Supervisors ("this Board") takes the following actions: 1. In accordance with the California Environmental Quality Act, the State CEQA Guidelines and the County's own CEQA Guidelines (together, "CEQA"), this Board FINDS that the proposed Mitigated Negative Declaration ("MND") is adequate for the purposes of compliance with CEQA and ADOPTS the MND for the Project. In support of these actions and conclusions, this Board ADOPTS the CEQA Findings. This Board ADOPTS these findings specifically for each of the Approvals and Entitlements it approves for the Project. This Board certifies that it has been presented with the Initial Study and that it has reviewed and considered the information contained in the Initial Study and the other information in the record prior to making the following recommendations, determinations and findings: The Board further certifies that the Initial Study reflects the lead agency's independent judgment and analysis, and that the Initial Study has been completed in compliance with the CEQA Guidelines. 2. ADOPTS the proposed General Plan Amendment (County File #GP04-0009) as part of the 2nd Consolidated General Plan Amendment for 2006, which changes the General Plan Land Use Element Map land use designations for the subject site from a combination of Single Family Residential Medium Density (SM) and Open Space (OS) to a combination of Single Family Residential High Density (SH) and Open.Space (OS) as illustrated on the map titled "Exhibit 8A" which is attached. 3. ADOPTS the proposed Rezoning (County File #RZ04-3153), changing the zoning designation of the subject site from R-6, Single Family Residential District and R-10, • Single Family Residential District to P-1, Planned Unit Development District, .with a .Board Resolution No. 2006/0 9 ?- Page 2.Page 2 • variance to allow application of the P-1 district for a residential development involving less than 5 (five)acres. 4. ADOPTS the proposed Development Plan (County File #DP04-3119) subject to the conditions of approval as recommended by the County Planning Commission and subject to the mitigation measures contained in the Mitigated Negative Declaration for this proj ect; BE IT FURTHER RESOLVED that the reasons for these actions are as follows: FINDINGS 1. Growth Management Element Performance Standards Traffic: Streets that provide access to and around the project site include Paulson Lane, Newell Avenue, Olympic Boulevard, Alpine Road, and South California Boulevard. Regional access to the project site is provided by Interstate 680 (I-680) and State Route 24. Traffic engineers and planners use the concept of Level of Service (LOS) to qualitatively describe traffic conditions. LOS ranges from LOS A, which describes free flow or ideal conditions with little or no delay; to LOS F, indicating problems where traffic flow exceeds design capacity. Based on discussions with Contra Costa County Transportation staff, six ® intersections were selected for evaluation. New AM and PM peak period (7:00-9:00 a.m. and 4:00-6:00 p.m.) turning movement counts were conducted at the six study intersections by Omni-Means, Ltd. From these peak period counts, the AM and PM peak hour volumes were derived using the accepted methodology for Contra Costa County and the City of Walnut Creek. According to the Transportation Study (Omni-Means, Ltd. 2004), all project study intersections are currently operating at acceptable levels (LOS D or better) during both the AM and PM peak hours. Vehicle congestion (queuing) was observed at the Olympic Boulevard/I-680 northbound ramps and Olympic Boulevard/Alpine Road intersections during both the AM and PM peak hours. Due to recent upgrades in signal timing and coordination at these intersections by the City of Walnut Creek, most of these vehicle queues clear the intersections within one signal cycle phase. Future base (near-term) conditions represent existing traffic conditions plus anticipated traffic generated by approved and/or pending development over the next three to five years. These would include projects located in Contra Costa County and the City of Walnut Creek. Future base traffic conditions do not include traffic volumes generated by the proposed project. With future base traffic added to existing traffic volumes, study intersection LOS would remain unchanged from existing conditions. The Olympic Boulevard/South California Boulevard intersection would experience the largest increase in vehicle trips from future base projects and would continue to operate at LOS A during the PM peak hour. i Board Resolution No. 2006/3 9 Z Page 1 The proposed project would generate 22 AM peak hour trips and 22 PM peak hour trips. • Water: The proposed project would be located on a suburban infill site that is already served by utilities and public service systems. Proposed uses on the site would include 22 residences. The level of public services required for the site would be slightly greater than the level currently demanded. The subject site lies within the service area of East Bay Municipal Utilities District (EBMUD). The EBMUD has indicated that a main extension, at the project sponsor's expense, will be required to serve the proposed development. Sanitary Sewer: The proposed project would be located on a suburban infill site that is already served by utilities and public service systems. Proposed uses on the site would include 22 residences. The level of public services required for the site would be similar to or slightly greater than the level currently demanded. The subject site lies within the Contra Costa Central Sanitary District. The application for this project was routed to them for comment when it was submitted to the Community Development Department and no response was received. However, the applicant would be required to comply with the District's standards as part of this development. Fire Protection: The Project site is within the service area of the Contra Costa County Consolidated Fire Protection District. The District requires that each residence be equipped with an automatic fire sprinkler system. In addition, the District has indicated that the proposed configuration of the loop road in both Phase I and Phase II comply with their turn around requirements. Public Protection: The applicant shall be required to comply with all county ordinances regarding public protection. Parks and Recreation: The Project is required to pay an in lieu fee of$2000.00 per unit for neighborhood park purposes. Flood Control and Drainage: The project will provide for the flood control and drainage needs of the development with appropriately sized facilities. The project is required to pay drainage area fees as adopted by the Flood Control District. II. Findings to Adopt a Rezoning A. Required Finding: The change proposed will substantially comply with the General Plan. Project Finding: The site currently is zoned R-6, Single Family Residential District and R-10, Single Family Residential District. The proposed rezoning to P-1, Planned Unit Development District will be consistent with the proposed General Plan Amendment to Single Family Residential -High Density. • F Board Resolution No. 2006 -,?-. Page 4 • B. Required Finding: The uses authorized or proposed in the land use district are compatible within the district and with uses authorized in adjacent districts. Project Finding: The use proposed is a residential P-1 development to Single Family High Density standards (5.0-7.2 units per net acre). The site is compatible with the adjacent districts to the south and west, which are residential, and zoned Single Family High (SH) and Single Family Medium (SM). C. Required Finding: Community need has been demonstrated for the use proposed, but this does not require demonstration of future financial success. Project Finding: The proposed use will assist in meeting.the housing development needs identified in the Housing Element of the General Plan. III. Findings for Adoption of a Planned Unit District (P-1) and Approval of a Final Development Plan A: Required Finding: The applicant intends to start construction within two and one-half years from the effective date of the zoning change and plan approval. Project Finding: The applicant has indicated they will start construction of Phase I immediately following recording of the map. B. Required Finding: The proposed planned unit development is consistent with the County General Plan. Project Findinz: The Project site has General Plan designations of Single Family Residential — Medium Density and Opera Space. The proposed General Plan Amendment would change the land use designation of the Single Family Residential - Medium Density to Single Family Residential — High Density. The proposed planned unit development is consistent with the General Plan as it is proposed for amendment, as explained in Section IIA of these Findings. C. Required Finding: In the case of residential development, it will constitute a residential environment of sustained desirability and stability, and will be in harmony with the character of the surrounding neighborhood and community. Project Finding: This project integrates residential units into a pocket of land that is bounded on the north b_v I-680 and on the south by Las Trampas Creek, and is connected to Olvmpic Boulevard by a sidewalk. The development is in harmony with the surrounding older neighborhoods to the south, east and west. D. Required Finding: The development of a harmonious, integrated plan justifies • exceptions from the normal application of this code. Board Resolution No. 2006/39Z- Page 5 Project Fines: The proposed project harinoniously integrates a high density development close to downtown Walnut Creek. E. Required Variance Findings for the application of P-1 District for residential development involving less than 5 acres. Project Findin : The special circumstance of the project site is its location. and,shape. The project site is a pocket of land that is otherwise isolated by the creek on the south and 1-680 on the north. By allowing this project, it provides high density residential development close to downtown Walnut Creek. IV. General Plan Consistency A. The Project, which includes the General Plan Amendment, is consistent with the proposed General Plan designation. The General Plan Amendment approved for this Project will not cause the General Plan to become internally inconsistent. The General Plan Amendment and the remainder of the General Plan comprise an integrated, internally consistent and compatible statement of policies for the County. The various land uses authorized for the Project, and each of its components, are compatible with the objectives, policies, general land uses, and programs specified in the General Plan. The Project is compatible with and conforms to the objectives, policies, general land uses and programs specified in the General Plan. The Project will further the objectives and policies of the General Plan and not obstruct their attainment. The Project is compatible with, and does not obstruct, General Plan goals and policies. The Project is in harmony with the policies of the General Plan. B. The Board has considered the effects of the Project on the housing needs of the region and balanced those needs against the public service needs of County residents and environmental resources. The Project helps to achieve a desirable balance. The Project is in harmony with surrounding land uses, and the site as designed for the Project is physically suitable for the development proposed. C. The General Plan comprises many objectives, policies, principles, programs, standards, proposals and action plans (collectively "policies"), as well as performance standards. At times the policies necessarily compete with each other. Examples of the tensions between General Plan policies are found between those policies that promote managed growth, and those that provide for protection of resources that exist because land is undeveloped (such as open space, visual resources and agricultural land). As part of approving the Project, all applicable General Plan policies and the extent to which the Project conforms to each of those policies have been considered. D. The Board has fully evaluated the extent to which the Project achieves each policy, including those pertaining to compatibility of land uses, compliance with principles of the Urban Limit Line and Measure C-1990, protection of open space, standards regarding geology, soils and earthquake risks, hazardous materials, flood hazards and • drainage, protection of water quality, protection of biological resources, transportation -Board Resolution No. 2006/.3p7 Page 6 • standards and goals, regional and local housing needs, jobs/housing balance, noise, protection of air quality, protection of visual resources, standards for public services and utilities, and protection of archeological and historical resources. The Board has also fully considered the Project's compliance with all performance standards in the General Plan, including the Growth Management Element policies and standards (including those for traffic levels of service), and performance standards for public services and facilities. E. The Board finds that through the development of housing at various economic levels, the Project will help implement housing-related goals of the General Plan. F. The Board acknowledges that the existing General Plan designations for the subject site were intended to separate the portion of the site available for housing development from the areas generally known to contain the Las Trampas Creek. The pending General Plan Amendment is intended to recognize the delineation of these two areas. The proposed residential designation is compatible and in harmony with densities in neighboring development in the vicinity. V. Measure C-1988 and Related Resolutions A. The Board has considered the Project's compliance with the traffic service objectives of Measure C-1988, the Contra Costa Transportation Improvement and Growth Management Program and related Contra Costa Transportation Authority (CCTA) resolutions. B. Measure C-1988 established a Growth Management Program, "to assure that future residential, business and commercial growth pays for the facilities required to meet the demands resulting from that growth." The Program requires the County to adopt Traffic Level of Service (LOS) Standards keyed to types of land use, and to comply with the adopted standards; to "adopt a development mitigation program to ensure that new growth is paying its share of the costs associated with that growth;" to participate in the forum established by the Authority to cooperate in easing cumulative traffic impacts, using the CCTA computer model; and to develop an implementation program that creates housing opportunities for all income levels. C. The County has complied with all these requirements. Most important, the County is achieving Measure C-1988's overarching goal that development pay its own way. The County has identified Project mitigations to ensure that the Applicant will defray the cost of those improvements that are proportionately attributable to the development. I hereby certify that this is a true and correct copy of an action taken and entered on the G:\Current Planning\curr-plan\Staff Reports\SD048939boardreso.doc minutes of th and of Supervisors on the date shown. ATTESTE JOH EN,Clerk of the Board • of Su is rs and nistrator By qty Board Resolution No. 2006/3:92 Page 7. . • Exhibit 2 County Planning Commission Resolution No. 15-2006 RESOLUTION NO. 15-2006 RESOLUTION OF THE COUNTY PLANNING COMMISSION OF THE COUNTY OF CONTRA COSTA, STATE OF CALIFORNIA, INCORPORATING FINDINGS AND RECOMMENDATIONS FOR THE REQUESTED GENERAL PLAN AMENDMENT, REZONING, FINAL DEVELOPMENT PLAN, AND VESTING TENTATIVE MAP FOR THE "PAULSON LANE" PROJECT IN THE WALNUT CREEK AREA OF SAID COUNTY. WHEREAS, BNB VENTURES, LLC (Applicant) & BNB VENTURES, LLC & J. VUICH (Owners) proposed development of a 22 lot subdivision on five parcels with Assessor's Parcel Numbers 184-100-030, -028, -007, -008, and -032 comprising 4.6 acres in the unincorporated Walnut Creek area of Contra Costa County, for which an application was received by the Community Development Department on December 16, 2004; and WHEREAS, for purposes of compliance with the provisions of the California Environmental Quality Act (CEQA) and the State and County CEQA Guidelines, a report dated August 2005 titled "Paulson Lane Subdivision and Mitigated Negative Declaration" (the "Initial Study") was prepared to determine whether an environmental impact report should be prepared for the Project; and WHEREAS, the Initial Study identified potentially significant impacts related to aesthetics, air quality, biology, cultural resources. geology and soils, hydrology, hazards and • noise, and the Initial. Study recommended mitigation measures which would reduce each identified impact to a less than significant level; and WHEREAS, on May 15, 2006 the County published a Notice of Public Review and Intent to Adopt a Proposed Mitigated Negative Declaration, which Notice recited the foregoing facts, indicated that the Applicant had agreed to accept each mitigation measure recommended by the Initial Study and started a period for public comments on adequacy of the environmental documents related to the Project that ran to April 14, 2006; and WHEREAS, after notice having been lawfully given, a public hearing was scheduled before the County Planning Commission on Tuesday, May 9, 2006, during. which the Commission fully reviewed, considered and evaluated all the testimony and evidence submitted in this matter: NOW, THEREFORE, BE IT RESOLVED that the County Planning Commission ("this Commission") takes the following actions: 1. In accordance with the California Environmental Quality Act. the State CEQA Guidelines and the County's CEQA Guidelines (together, "CEQA"), this Commission FINDS that the proposed Mitigated Negative Declaration ("MND") is adequate for the purposes of compliance with CEQA and ADOPTS the MND for the Project. In support of these actions and conclusions, this Commission ADOPTS the CEQA Findings. This Commission adopts these findings specifically for each of the Approvals and Entitlements it approves or recommends for approval for the Project. This Commission certifies that it has been presented with the Initial Study and that it has • reviewed and considered the information contained in the Initial Study and the other information in the record prior to making the following recommendations, determinations and findings. The Commission further certifies that the Initial Study reflects the lead agency's independent judgment and analysis, and that the Initial Study has been completed in compliance with CEQA. 2. Recommends to the Board of Supervisors APPROVAL of the proposed General Plan Amendment (County File #GP040009) changing the General Plan land use designations for the subject site from a combination of Single Family Residential — Medium Density (SM) and Open Space (OS) to a combination of Single Family Residential - High Density (SH) and Open Space (OS) as illustrated in the map attached as Exhibit B, and recommends that the Board ADOPT the findings. 3. Recommends to the Board of Supervisors APPROVAL of the proposed Rezoning (County File #RZ043153), changing the zoning designation of the subject site from R-6 Single Family Residential District and R-10 Single Family Residential District to P-1 Planned Unit District, with a variance to allow application of the P-1 district for a residential development involving less than 5 (five) acres. 4. Recommends to the Board of Supervisors APPROVAL of the proposed Final Development Plan (County File #DP043119) in two phases, subject to the mitigation measures contained in the MND for this project and subject to the conditions of approval for this project. • 5. APPROVES the Vesting Tentative Map (County File #SD048939) in two phases, subject to the mitigation measures, conditions of approval and adoption of the General Plan Amendment and Rezoning by the Board of Supervisors, and this Commission ADOPTS the findings supporting such approval. BE IT FURTHER RESOLVED that the reasons for these recommendations are as follows: FINDINGS I. Growth Management Element Performance Standards Traffic: Streets that provide access to and around the project site include Paulson Lane, Newell Avenue, Olympic Boulevard, Alpine Road, and South California Boulevard. Regional access to the project site is provided by Interstate 680 (1-680) and State Route 24. Traffic engineers and plamiers use the concept of Level of Service (LOS) to qualitatively describe traffic conditions. LOS ranges from LOS A, which describes free flow or ideal conditions with little or no delay; to LOS F, indicating problems where traffic flow exceeds design capacity. Based on discussions with Contra Costa County Transportation staff; six intersections were selected for evaluation. New AM and PM peak period (7:00-9:00 a.m. PaLye 2 and 4:00-6:00 p.m.) turning movement counts were conducted at the six study intersections • by Omni-Means, Ltd. From these peak period counts, the AM and PM peak hour volumes were derived using the accepted methodology for Contra Costa County and the City of Walnut Creek. According to the Transportation Study (Omni-Means, Ltd. 2004), all project study intersections are currently operating at acceptable levels (LOS D or better) during both the AM and PM peak hours. Vehicle congestion (queuing) was observed at the Olympic Boulevard/I-680 northbound ramps and Olympic Boulevard/Alpine Road intersections during both the AM and PM peak hours. Due to recent upgrades in signal timing and coordination at these intersections by the City of Walnut Creek, most of these vehicle queues clear the intersections within one signal cycle phase. Future base (near-term) conditions represent existing traffic conditions plus anticipated traffic generated by approved and/or pending development over the next three to five years. These would include projects located in Contra Costa County and the City of Walnut Creek. Future base traffic conditions do not include traffic volumes generated by the proposed project. With future base traffic added to existing traffic volumes, study intersection 'LOS would remain unchanged from existing conditions. The Olympic Boulevard/South California Boulevard intersection would experience the largest increase in vehicle trips from future base projects and would continue to operate at LOS A during the PM peak hour. The proposed project would generate 22 AM peak hour trips and 22 PM peak hour trips. Water: The proposed project would be located on a suburban infill site that is already served by utilities and public service systems. Proposed uses on the site would include 22 residences. The level of public services required for the site would be slightly greater than the level currently demanded. The subject site lies within the service area of East Bay Municipal Utilities District (EBMUD). The EBMUD has indicated that a main extension, at the project sponsor's expense, will be required to serve the proposed development. Sanitary Sewer: The proposed project would be located on a suburban infill site that is already served by utilities and public service systems. Proposed uses on the site would include 22 residences. The level of public services required for the site would be similar to orr slightly greater than the level currently demanded. . The subject site lies within the Contra Costa Central Sanitary District. The application for this project was routed to them for comment when it was submitted to the Community .Development Department and no response was received. However, the applicant would be required to comply with the District's standards as part of this development. Fire Protection: The Project site is within the service area of the Contra Costa County Consolidated Fire Protection District. The District requires that each residence be equipped Page 3 with an automatic fire sprinkler system. In addition, the District has indicated that the • proposed configuration of the loop road in both Phase I and Phase II comply with their turn around requirements. Public Protection: The applicant shall be required to comply with all county ordinances regarding public protection. Parks and Recreation: The Project is required to pay an in lieu fee of$2000.00 per unit for neighborhood park purposes. Flood Control and Drainage: The project will provide for the flood control and drainage needs of the development with appropriately sized facilities. The project is required to pay drainage area fees as adopted by the Flood Control District. II. Findings to Adopt a Rezoning A. Required Finding: The change proposed will substantially comply with the General Plan. Project Finding. The site currenth) is zoned R-6, Single Family Residential District and R-10, Single Family Residential District. The proposed rezottit7g to P-1, Planned Unit District will he consistent with the proposed General Plan Amendment to Single Family Residential - High Density. B. Required Finding: The uses authorized or proposed in the land use district are compatible within the district and with uses authorized in adjacent districts. Project Finding: The use proposed is a residential P-1 development to Single Family Residential - High Density standards (5.0-7.2 units per net acre). The site is compatible with the adjacent districts to the south and west, which are residential, and zoned residential. C. Required Finding: Community need has been demonstrated for the use proposed, but this does not require demonstration of future financial success. Project Finding: The proposed use will assist in meeting the housing development needs identified in the Housing Element of the General Plan. III. Findings for Adoption of a Planned Unit District (P-1) and Approval of a Final Development Plan A. Required Finding: The applicant intends to start construction within two and one-half years from the effective date of the zoning change and plan approval. Page 4 Project Finding: The applicant has indicated they will start construction of Phase I immediately following recording of the map. . B. Required Finding: The proposed planned unit development is consistent with the County General Plan. Project Finding: The Project site has General Plan designations of Single Family Residential — Medium Density, and Open Space. The proposed planned unit development is consistent with the General Plan as it is proposed for- amendment, as explained in Sector: II.A of these Findings. C. Required Finding: In the case of residential development, it will constitute a residential environment of sustained desirability and stability, and will be in harmony with the character of the surrounding neighborhood and community. Project Finding This project integrates residential units into a pocket of land that is bounded on the north by I-680 and on the south be Las Trampas Creek, and is connected to Olympic Boulevard by a sidewalk. The development is in harmon-y with the surrounding older neighborhoods to the south, east and west. D. Required Finding: The development of a harmonious, integrated plan justifies exceptions from the normal application of this code. • Project Finding: The proposed project harmoniously integrates a high density development close to downtown Walnut Creek. E. Required Variance Findings for the application of P-1 District for residential development involving less than 5 acres. Project Finding: The special circumstance of the project site is its location and shape. The project site is a pocket of land that is otherwise isolated by the creek on the south and I-680 ort the north. By allowing this project, it provides high density residential development close to downtown Walnut Creek. IV. Findings to Approve a Tentative Map A. Required Finding: The County Planning Agency shall not approve a tentative map unless it shall find that the proposed subdivision, together with the provisions for its design and improvement, is consistent with the applicable general and specific plans required by law. Project Finding: As demonstrated in Section V of these Findings, the proposed project (which includes a tentative reap) is consistent with the General Plan, as it is proposed for amendment. There are no specific plans applicable to the subject site. Page 5 Based on the entire record and as summarized herein, the tentative map is consistent with the County General Plan, as it is proposed for amendment. B. Required Finding: The County PlanningAgency shall not approve a tentative map unless it shall find that the proposed subdivision fulfills construction requirements. Project Finding: As required by the conditions of approval and the Mitigation Monitoring Program, the tentative map shall fulfill all applicable County imposed construction requirements. Based on the entire record and as summarized herein, the proposed subdivision f ulfills construction requirements. V. General Plan Consistency A. The Project, which includes the General Plan Amendment, is consistent with the proposed General Plan designation. The General Plan Amendment approved for this Project will not cause the General Plan to become internally inconsistent. The General Plan Amendment and the remainder of the General Plan comprise an integrated, internally consistent and compatible statement of policies for the County. The various land uses authorized for the Project, and each of its components, are compatible with the objectives, policies, general land uses, and programs specified in the General Plan. The Project is compatible with and conforms to the objectives, policies, general land uses and programs specified in the General Plan. The Project will further the objectives and policies of the General Plan and not obstruct their attainment. The Project is compatible with, and does not obstruct, General Plan goals and policies. The Project is in harmony with the policies of the General Plan. B. The Commission has considered the effects of the Project on the housing needs of the region and balanced those needs against the public service needs of County residents and available fiscal and environmental resources. The Project helps to achieve a desirable balance. The Project is in harmony with surrounding land uses, and the site as designed for the Project is physically suitable for the development proposed. C. The General Plan comprises many objectives, policies, principles, programs, standards, proposals and action plans (collectively "policies"), as well as performance standards. At times the policies necessarily compete with each other. Examples of the tensions between General Plan policies are found between those policies that promote managed growth, and those that provide for protection of resources that exist because land is undeveloped (such as open space, visual resources and agricultural land). As part of approving the Project, all applicable General Plan policies and the extent to which the Project conforms to each of those policies have been considered. D. The Commission has fully evaluated the extent to which the Project achieves each policy, including those pertaining to compatibility of land. uses, compliance with principles of the Urban Limit Line and Measure C-1990, protection of open space, standards regarding geology, soils and earthquake risks, hazardous materials, flood hazards and drainage, protection of water quality, protection of biological resources, transportation standards and goals, regional and local housing needs, jobs/housing r Paye 6 balance, noise, protection of air quality, protection of visual resources, standards for • public services and utilities, and protection of archeological and historical resources. The Commission has also fully considered the Project's compliance with all performance standards in the General Plan, including the Growth Management Element policies and standards (including those for traffic levels of service), and performance standards for public services and facilities. E. The Commission finds that through the development of additional housing, the Project Will help implement housing-related goals of the General Plan. F. The Commission acknowledges that the existing General Plan designations for the subject site were intended to separate the portion of the site available for housing development from the areas generally known to contain the Las Trampas Creek. The pending General Plan Amendment is intended to recognize the delineation of these two areas. The proposed residential designation is compatible and in harmony with densities in neighboring development in the vicinity. VI. Measure C-1988 and Related Resolutions A. The Commission has considered the Project's compliance with the traffic service objectives of Measure C-1988, the Contra Costa Transportation Improvement and Growth Management Program and related Contra Costa Transportation Authority ® (CCTA) resolutions. B. Measure C-1988 established a Growth Management Program, "to assure that future residential, business and commercial growth pays for the facilities required to meet the demands resulting from that growth." The Program requires the County to adopt Traffic Level of Service (LOS) Standards keyed to types of land use, and to comply with the adopted standards; to "adopt a development mitigation program to ensure that new growth is paying its share of the costs associated with that growth:" to participate in the forum established by the Authority to cooperate in easing cumulative traffic impacts, using the CCTA computer model; and to develop an implementation program that creates housing opportunities for all income levels. C. The County has complied with all these requirements. Most important, the County is achieving Measure C-1988's overarching goal that development pay its own way. The County has identified Project mitigations to ensure that the Applicant will defray the cost of those improvements that are proportionately attributable to the development. WHEREAS, at the May 9, 2006 hearing the Commission modified two conditions of approval as follows: COA#10 Prior to the issuance of building permits, the applicant shall contribute 52000.00 per lot upon which a residence is being built to the County for Park- Dedication arkDedication fees. During their involvement with the project, the applicant shall • cooperate with the County, the City of Walnut Creek, Caltrans and Friends of Page 7 the Creek in the implementation of a trail along Paulson Lane and property • owned by Caltrans. COA 39 Final landscape plans shall consist of pest-resistant plants and plantings appropriate to site soils, slopes, climate, sun, wind, rain, land use, air movement, ecological consistency and plant interactions. Final landscape plans shall be designed to minimize irrigation and runoff and to minimize use of fertilizers and pesticides that can contribute to stormwater pollution. Driveways and parking areas shall drain to bio-retention areas or swales and the plantings included within these areas shall be tolerant of the site specific soil and moisture conditions. Integrated Pest Management (IPM) information, stormwater pollution prevention information and the brochure "Don't Plant a Pest" published by the California Invasive Plant Council shall be provided to new homeowners. NOW BE IT RESOLVED that the secretary of this Commission will sign and attest.the certified copy of this resolution and deliver the same to the Board of Supervisors, all in accordance with the Government Code of the State of California. This Resolution was approved upon motion of the County Planning Commission on Tuesday, May 9, 2006 by the following vote: AYES: Commissioners Clark, Terrell, Battaglia, Gaddis, Wong and Snyder NOES: None ABSENT: Commissioner Murray ABSTENTIONS: None Donald Snyder Chair of the County Planning Commission County of Contra Costa, State of California ATTEST: - ---- Dennis M. Barry, Secretary County of Contra Costa State of California Page 8 Exhibit 3 Conditions of Approval CONDITIONS OF APPROVAL COUNTY FILE #'S SD048939 & DP043119 Administrative 1. This approval is based on the exhibits/reports received by the Community Development Department listed as follows: A. Tentative Map and Development Plan, Sheet TM-2, TM-3, TM-4 & TM-5 of 12, dated January 26, 2006 B. Tree Preservation and Grading Daylight Line Plan, Sheet TM-6 of 12, & Tree Retention Schedule, Sheet TM- 7 of 12 dated January 26, 2006. C. Preliminary Development Las Trampas Creek Setback Exhibit, Sheet TM-9 of 12, dated January 26, 2006. D. Preliminary Storm Water Treatment Management Plan, Sheet TM-11 of 12, dated January 26, 2006. E. Biological Resources Report Paulson Lane Residential Development, dated October 20, 2004. • F. Tree Survey & Report, Paulson Lane, by Joseph McNeil, Consulting Arborist, dated December 10, 2004 & follow-up memo, dated February 13, 2006 G. Preliminary Geotechnical Study Paulson Lane Residential Subdivision, by Earthtec, Ltd., dated December 8, 2004 & and follow-up memo dated February 10, 2006. H. Environmental Noise Survey Results and Recommendations for Paulson Lane, by Wilson, Ihrig & Associates, Inc., dated December 10, 2004. I. Transportation Study for the proposed Paulson Lane Residential Project, by Omni Means Engineers, dated October 2004. J. Preliminary House Location and Landscape Plan, by Camp & Camp Associates, dated November 23, 2004. K. Preliminary Tree Mitigation and Existing Tree Plan, by Camp & Camp Associates, dated May 12, 2005 and revised May23, 2005. L. Preliminary Air Quality Analysis Paulson Lane, by LSA Associates, dated December 2005. 2. This subdivision is approved contingent upon the following Board of • Supervisors actions; A. Approval of the proposed General Plan amendment, County File#GP04- 0009. B. Approval of.the rezoning application (County File #RZ043153) placing the 4.6 acre property within the P-1 zoning district, to allow application of a P-1 district for a residential development less than 5 acres, and conforming development plan. 3. This approval allows for a maximum of 22 residential lots in two phases. 4. This application is subject to an initial application fee, which was paid with the application submittal, plus time and material costs if the application review expenses exceed 100% of the initial fee. Any additional fee due must be paid within 60 days of the permit effective date or prior to use of the permit whichever occurs first. The fees include costs through permit issuance plus five working days for file preparation. You may obtain current costs by contacting the project planner. If you owe • additional fees, a bill will be sent to you shortly after permit issuance. 5. Except as modified by the Application Exhibits or by the conditions herein, the guide for development shall be the Single Family Residential (R-6) District, and subject to the Zoning Administrator's review and approval at least thirty(30) days prior to the issuance of building permits. Indemnification 6. Pursuant to Government Code Section 66474.9, the applicant (including the subdivider or any agent thereof) shall defend, indemnify, and hold harmless the County, agents, officers, and employees from any claim, action, or proceeding against the Agency (the County) or its agents, officers, or employees to attack, set aside, void, of annul, the Agency's approval concerning this subdivision map application, which action is brought within the time period provided in Section 66499.37. The County will promptly notify the subdivider of any such claim, action, or proceeding and cooperate fully in the defense. Page 2 • Compliance Report 7. At least 45 days prior to filing a final map or issuance of grading permit, which ever occurs first, the applicant shall submit a report on compliance with the conditions of approval with this permit for the review and approval of the Zoning Administrator. The fee for this application is a deposit of$1,000 that is subject to time and materials costs. Should staff costs exceed the deposit, additional fees will be required. A. Except for those conditions administered by the Public Works Department, the report shall list each condition followed by a description of what the applicant has provided as evidence of compliance with that condition. (A copy of the computer file containing the conditions of approval may be available; to try to obtain a copy, contact the project planner at 335-1207.) B. Unless otherwise indicated, the applicant will be required to demonstrate compliance with the condition of this report prior to filing the final map. • Child Care 8. At least 30 days prior to the issuance of building permits, the developer shall pay a fee of$400.00 per lot upon which a residence is being built for childcare facility needs in the area as established by the Board of Supervisors. Police Services 9. The owner of the property shall participate in the provision of funding to maintain and augment police services by voting to approve a special tax for the parcels created by this subdivision approval. The tax shall be the per parcel annual amount (with appropriate future CPI adjustment) then established at the time of voting by the Board of Supervisors. The election to provide for the tax shall be completed prior to filing the Final Map. The property owner shall be responsible for paying the cost of holding the election, payable at the time the election is requested by the owner. Allow a minimum of three to four months for processing. • Page 3 Park Dedication_&Trail Conditions 10 A Prior to the issuance of building permits, the applicant shall contribute $2000.00 per lot upon which a residence is being built to the County for Park Dedication fees. 10 B During their involvement with the project, the applicant shall cooperate with the County, the City of Walnut Creek, Caltrans and Friends of the Creek in the implementation of a trail along Paulson Lane and property owned by Caltrans. 10C At least 30 days prior to recording the final map the applicant shall submit a deed disclosure for review and approval of the Zoning Administrator. The purpose of the deed disclosure is to inform the buyers of the affected properties that there is a potential public trail adiacent to their rear yards. The approved deed disclosure shall be recorded on the affected properties with the final map. Aesthetics Lighting Control 11. All outdoor lighting associated with the proposed development shall be • designed and located to minimize ambient light levels for any given application, consistent with public safety standards. Lighting shall be placed in areas of pedestrian activity and at building entrances, and shall be minimized elsewhere. Ornamental, pedestrian scale lighting fixtures shall be utilized to the degree possible. Area lighting shall be directed downward with no splay of lighting directed offsite. Outdoor lights that are greater than ten feet high shall .incorporate a cut-off shield that prevents the light source from being directly visible from areas offsite. No lighting shall blink, flash or be of unusually high intensity or brightness. (MM AES-1). 30 days prior to the issuance of building permits the applicant shall provide a street lighting plan for the review and approval of the Zoning Administrator. Air Quality Control Measures for.Construction Emissions 12. The "Basic Measures'' and the "Enhanced Measures" listed in Table 1 shall be incorporated into the construction plans.for the proposed project. The "Optional Measures" listed in Table 1 shall be incorporated if further emission reductions are deemed necessary by the County. The County Page 4 i • shall review these construction plans to ensure these measures have been incorporated. (MMAIR-1) Basic Control Measures—The following controls should be implemented at all construction sites. • Water all active construction areas at least twice daily. • Cover all trucks hauling soil, sand, and other loose materials or require all trucks to maintain at least two feet of freeboard. • Pave, apply water three times daily, or apply (non-toxic) soil stabilizers on all unpaved access roads, parking areas and staging areas at construction sites. • Sweep daily (preferably with water sweepers) all paved access roads, parking areas and staging areas at construction sites. • Sweep streets daily (preferably with water sweepers) if visible soil material is carried onto adjacent public streets. Enhanced Control Measures — The following measures should be implemented at construction sites greater than four acres in area. • All "Basic" control measures listed above. • Hydroseed or apply(non-toxic) soil stabilizers to inactive construction areas. • Enclose, cover, water twice daily or apply (non-toxic) soil binders to exposed stockpiles (dirt, sand, etc.). • Limit traffic speeds on unpaved roads to 15 mph. • Install sandbags or other erosion control measures to prevent silt runoff to public roadways. • Replant vegetation in disturbed areas as quickly as possible. Install wheel washers for all exiting trucks, or wash off all trucks and equipment leaving the site. Optional Control Measures — The following control measures are strongly encouraged at construction sites that are large in area, located near sensitive receptors or which for any other reason may warrant additional emissions reductions. • Install wind breaks, or plant trees/vegetative wind breaks at windward side(s) of construction areas. • Suspend excavation and grading activity when winds exceed 25 mph. • Limit the area subject to excavation, grading and other construction activity at any one time. Source: BAAQMD CEQA Guidelines, 1999. Biology Las Trampas Creek California Red-Legged Frog and Western Pond Turtle Pre-Construction Surveys. 13. Pre-construction surveys for California red-legged frogs and western pond turtles 'shall be conducted not more than 48 hours prior to the commencement of site disturbances. If California red-legged frogs are • detected in an area where there is potential for a take during construction, the U.S. Fish and Wildlife Service shall be consulted to determine the Page 5 appropriate course of action. If western pond turtles are detected, and they • are likely to be disturbed during outfall construction or riparian restoration, they shall be relocated to a suitable reach of creek upstream or downstream from the project. (MM BI0-1) Silt Fencing. 14. Prior to construction, silt fencing or equivalent shall be installed along the top of bank to prevent the movement of amphibians or reptiles from the riparian area onto the project site. The bottom of this fencing shall be buried and shall be checked and maintained weekly by the construction team to ensure that no gaps develop through which amphibians or reptiles could pass. This fencing shall be removed once construction of the proposed project is complete. (MM BI0-2) Regulatory Compliance 15. A Streambed Alteration Agreement shall be acquired prior to construction of the storm drain outfall to Las Trampas Creek if it is situated below creek top of bank. If the placement of fill within waters of the U.S. is required for the outfall, a 404 permit from the U.S. Army Corps of Engineers and a 401 certification from the Regional Water Quality Control Board must be issued prior to the outfall construction. (MM BI0-6) Creek Protection & General Clean-up 16. Prior to recording the final map the applicant shall submit for review and approval of the Zoning Administrator and the Public Works Department draft language for a deed notification. The draft language is for the Grant Deed of Development Rights for the creek structure setback area in accordance with condition of approval #80. The approved language shall be recorded on each applicable lot concurrently with the map. (MM BI0- 7) 17. The project shall be responsible for removing debris that is now present in the creek within the project site boundaries. This includes, but is not limited to, such things as a wheel barrel, a car battery and broken limbs that are present from a recent storm. No wildlife or living plant life shall be removed. Page 6 • 18. Prior to construction, a qualified biologist shall conduct a training session on California red-legged frogs and western pond turtles for construction personnel. (MM BI0-3) Trees Passerines and Nesting Raptors. 19. If site disturbance is commenced between February 1 and August 31, a pre-construction survey shall be conducted by a qualified wildlife biologist. If nests of either migratory birds or birds of prey are detected on or adjacent to the site, the applicant shall consult with the CDFG to determine size of a suitable buffer in which no new site disturbance is permitted until August 31, or the qualified biologist determines that the young are foraging independently. If more than 15 days elapses between the survey and site disturbance, the survey shall be repeated. (MM BI0-4) Bat Roosts 20. An assessment of the suitability of the trees and buildings on site to support special-status bats shall be conducted by a qualified biologist. All potential roost areas, suitable trees and structures shall be examined for • evidence of bat activity. If there is evidence that bats have been roosting within structures or trees on the site that would be removed for the proposed project, a mitigation plan that addresses avoidance of impacts during the roosting season, humane eviction, and partial dismantling of an occupied structure or tree shall be prepared. (MM BIO-5) Tree Replacement 21. The applicant shall generally follow the Tree Mitigation Plan, dated 5/12/05 & revised 5/23/05 by Camp & Camp Associates that provides for a total of 214 replacement trees, except that, the proposed trees along the sidewalk down to Olympic Blvd. from the project site shall not be planted in the public right-of-way and approximately 10 feet in back of curb. Prior to grading the applicant shall submit for'review and approval of the Zoning Administrator a revised tree mitigation plan that shows those trees either planted outside of the public right-of-way per the above specifications or relocated on site. The total number of trees to be replaced shall remain 214 replacement trees. The applicant shall also generally follow the Preliminary House Location and Landscape Plan dated 11/23/04. Page 7 Tree Protection Zones. • 22. Tree protection zones shall be established around trees to be preserved. Traffic, parking, material storage, or wash-out of equipment shall be prohibited in these zones throughout the duration of the project. Tree protection zones shall be fenced with temporary 6-foot chain link fence. Fencing shall be in places prior to demolition, including removal of trees not to be preserved. When it is necessary to work within a protected zone, or to install landscaping, such work shall be done in cooperation with the arborist. If it is necessary to open the fence temporarily, the arborist shall be notified. A sign, provided by the arborist, shall be posted every 100 feet along the temporary fencing. (MM BIO-8) 23. Ten days prior to site disturbance of any kind the applicant shall submit for review and approval of the Zoning Administrator a site plan showing where the fencing around the tree protection zones will be located consistent with the above noted arborist report. This siteplan shall be prepared by the project arborist and the approved fencing shall be installed prior to any site disturbance. The project arborist shall confirm, to the County, the fencing is in place prior to any site disturbance. Tree Protection. • 24. As much as possible, natural leaf litter shall be allowed to accumulate under all existing trees that will be preserved, as natural mulch. No pruning shall occur except for specific reasons, under the direction of the arborist. During construction, an irrigation regimen shall be established for trees near construction activity. No paints or solvents shall be discarded on site, and excess concrete, stucco, and mortar shall be disposed of off-site. Root Protection 25. Areas where roots may potentially be cut shall be monitored. Cuts for trenches or walls that are adjacent to or in protected tree zones shall be covered and moistened daily until they are backfilled. (MM BI0-10) 26. The recommendations in the Tree Survey & Report by Joseph McNeil (2004), and his follow-up memo dated February 13, 2006 shall be implemented. 27. Per the February 13, 2006 memo from the project arborist Joseph McNeill, the health of trees # 368, #351, #360.1, 4392-398 shall be evaluated prior Page 8 to the issuance of building pernzits. If necessary, the health of these trees shall be put into a deed disclosure for each associated lot. Native Trees 28. Native trees and shrubs shall be incorporated into landscape plans developed for the project wherever possible and shall be compatible with existing trees on site. (MM BI0-11) Cultural Resources Unanticipated Discoveries. 29. If deposits of prehistoric or historic archaeological materials, including but not limited to charcoal, obsidian or chert flakes, grinding bowls, shell fragments, bone, pockets of dark, friable soils, glass, metal, ceramics, wood or similar debris, are discovered during grading, trenching, or other on-site excavation(s), earthwork within 100 feet of these materials shall be stopped until a professional archaeologist certified by the Registry of Professional Archaeologists (RPA) has had an opportunity to evaluate the • significance of the find and suggest appropriate mitigation(s), as deemed necessary. (MMCULT-1) Paleontological Resources 30. If paleontological resources are uncovered during grading or other on-site excavation(s), earthwork within 100 feet of these materials shall be stopped until a certified professional archaeologist/paleontologist has had an opportunity to evaluate the significance of the find and suggest appropriate mitigation(s), as deemed necessary. (MMCULT-2) Native American Burials 31. If human remains are encountered, work within 25 feet of the discovery shall be redirected and the County Coroner notified immediately. At.the same time, an archaeologist shall be contacted to evaluate the situation. Project personnel shall not collect or move any human remains and associated materials. If the human remains are of Native American origin, the Coroner must notify the Native American Heritage Commission within 24 hours of identification. The Native American Heritage Commission • will identify a Native American Most Likely Descendent (MLD) to inspect the site and provide recommendations for the proper treatment of Page 9 the remains and associated grave goods. Upon completion of the • evaluation, a report shall be prepared documenting the methods and results, as well as recommendations for the treatment of human remains and any associated cultural materials, as appropriate and in coordination with the recommendations of the MLD. The report shall be submitted to the City and the Northwest Information Center. (MM CULT-3) Geology Final Geotechnical Report 32. At least 30 days prior to recordation of Final Map, the Applicant shall submit a final geology, soil, and foundation report meeting the requirements of Subdivision Ordinance Section 94-4.420 for review and approval by the Planning Geologist. Improvement, grading, and.building plans shall carry out the recommendations of the approved report. This report shall include evaluation of the potential for liquefaction, seismic settlement and other types of seismically-induced ground failure by recognized methods appropriate to soil conditions discovered during subsurface investigation. It shall also evaluate the hazard posed by expansive soils and provide appropriate recommendations for remediation of geotechnical/geologic hazards, along with specific standards and criteria for grading, foundation and drainage design that are sensitive to geologic constraints and UBC seismic parameters. (MM GEO-1) Deed Acknowledgments. 33. The Applicant shall record a statement to run with the deeds to the property acknowledging the approved geology, soil, and foundation report by title, author (firm), and date, calling attention to approved recommendations, and noting that the report is available from the seller. (MM GEO-2) Engineered Slope Gradients 34. Engineered slopes shall have gradients of 2:1 (or flatter). Where needed, retaining walls or reinforced earth shall be utilized with proper design. (MM GEO-3) Page 10 • Hazards Hazardous Materials .Management Plan. 35. Prior to construction, the construction contractor shall prepare a Hazardous Materials Management Plan for approval by the County. The plan shall include specific information on how the Contractor intends to safely transport and store fuels, oils, coatings, and cement, and conduct fueling and equipment maintenance operations. In addition, the plan shall describe measures to contain rinsate resulting from the cleaning of equipment. Rinsate shall not be allowed to be discharged to the ground or to the creek but must be contained and disposed of off site, at a location designated in the plan. The plan shall also include specific measures to be implemented in the event of a release of a hazardous material into water or onto land. The Contractor shall be required to have on hand at all times adequate absorbent materials and containment booms to handle a spill equivalent to the largest container of fuels or oil in their possession. (MM HAZ-1) ACM and Lead-Based Paint Sampling 36. Sampling shall be conducted to determine the presence or absence of ACM and lead-based paint. An ACM Investigation shall be performed by an Asbestos Hazardous Emergency Response Act (AHERA) certified inspector under Toxic Substances Control Act (TSCA) Title Il and certified by Cal Occupational Safety Health Administration (OSHA)under State of California rules and regulations (California Code of Regulations, Section 1529). Surveys for lead-based paint shall be conducted prior to demolition of structures within the project area. Lead-based paint and ACM shall be remediated according to all applicable state and federal regulations. (MM HAZ-2) Hydrology BMP Operation and Maintenance 37. All accessible street inlets shall be marked with the words "No Dumping! Flows to Bay" and these markings shall be periodically maintained or replaced. Inlets and pipes conveying stormwater to BMPs will be inspected and maintained as part of BMP Operation and Maintenance Plan. (MM HYDRO-1) Page 11 Swales and Infiltration Planters. • 38. Swales and infiltration planters shall be designed and constructed according to the criteria included in the Storm Water Control Plan for the project site. (MM HYDRO-2) Final Landscape Plan Requirements 39. Final landscape plans shall consist of pest-resistant plants and plantings appropriate to site soils, slopes, climate, sun, wind, rain, land use, air movement, ecological consistency and plant interactions. Final landscape plans shall be designed to minimize irrigation and runoff and to minimize use of fertilizers and pesticides that can contribute to stormwater pollution. Driveways and parking areas shall drain to bio-retention areas or swales and the plantings included within these areas shall be tolerant of the site specific soil and moisture conditions. Integrated Pest Management (IPM) information, stormwater pollution prevention information and the brochure "Don't Plant a Pest" published by the California Invasive Plant Council shall be provided to new homeowners. (MM HYDRO-3) Noise Final Noise Study. 40. Prior to issuance of building permits, a final noise.study shall be prepared and submitted to the County for review and approval. The final noise study shall specify appropriate construction details and building shell components to ensure the project meets all Contra Costa County noise level requirements. Building plans shall carry out all the recommendations of the approved report. (MM NOISE-1) Landscaping 41. Comply with the following landscape/irrigation improvement and initial protection requirements subject to the review and approval of the Zoning Administrator: A. Final Landscape Plan: At least 30 days prior to the issuance of a grading permit a final landscape/irrigation plan, prepared by a licensed landscape architect shall be submitted to the Community Development Department (CDD) for review and approval of the Zoning Administrator. The Final Plan shall be designed in general accord with the preliminary landscape plan exhibit dated November 23, 2004, and the Tree Mitigation and Existing Tree Plan exhibit, dated May 12, 2005, except that, the proposed trees along the sidewalk down to Page 12 Olympic Blvd. from the project site shall not be planted in the public right-of-way and approximately 10 feet in back of curb. B. Minimum Size Plants: All proposed trees shall be a minimum of 15- gallon size; all shrubs shall be a minimum 5-gallon size. C. Maintenance Cost: Landscaping shall generally be designed to minimize landscape maintenance cost. D. Compliance with Water Conservation and Sight Obstruction Ordinance Requirements: The landscape plan shall contain sufficient information to demonstrate compliance with the reporting requirements and standards of the Water Conservation Landscaping in New Developments ordinance (Chapter 82-26) or better, and the Sight Obstruction at Intersections ordinance (Chapter 82-18). The latter ordinance applies to intersections with public roads. The landscape architect shall certify that the plan complies with the ordinance improvement standards and.reporting requirements. E. To assure the long term viability of this landscaping the applicant shall post a bond for the value of the landscaping, installation plus 20%. The term of the bond shall extend 24 months beyond the completion of construction (i.e. occupancy). Prior to the acceptance of the bond by the County a qualified landscape designer shall assess the value of the landscape and provide a copy of that assessment to the Community Development Department. Prior to the release of the bond a landscape designer shall submit a letter to the Zoning Administrator that the landscaping is in good health. Construction Conditions 42. The Applicant shall comply with the following construction noise, dust, litter control and construction traffic requirements: A. Construction Period Development Activity Restrictions — Contractor and/or developer shall comply with the following construction noise, dust, litter, and traffic control requirements: All construction activities shall be limited to the hours of 7:30 A.M. to 5:00 P.M., Monday through Friday, and shall be prohibited on state and federal holidays on the calendar dates that these holidays are observed by the state or federal government as listed below: New Year's Day(State and Federal) Birthday of Martin Luther King,Jr. (State and Federal) Page 13 Washington's Birthday/Presidents' Day (State and Federal) Lincoln's Birthday (State) Cesar Chavez Day(State) Memorial Day (State and Federal) Independence Day (State and Federal) Labor Day(State and Federal) Columbus Day(State and Federal) Veterans Day(State and Federal) Thanksgiving Day(State and Federal) Day after Thanksgiving(State) Christmas Day(State and Federal) For specific details on the actual day the state and federal holidays occur, please visit the following websites: Federal Holidays http://www.opm.gov/fedhol/2006.asp California Holidays http://www.edd.ca.gov/eddsthol.htm B. The project sponsor shall require their contractors and subcontractors to fit all internal combustion engines with mufflers which are in good condition and shall locate stationary noise-generating equipment such as air compressors; concrete pumpers and power generators as far away from existing residences as possible. Unnecessary idling of internal combustion engines shall be prohibited. C. Prior to the commencement of any construction (e.g. grading, demolition) on the site, the applicant shall designate a construction supervisor to serve as a noise disturbance coordinator. The coordinator will be responsible for responding to any inquiries/complaints regarding noise activity on the site. The name, title, and telephone number of the coordinator shall be posted conspicuously at the project site. The coordinator shall transmit to the Community Development Department at two weeks intervals, any records of any complaints along with the disposition. D. At least one week prior to commencement of grading or construction, the Applicant shall prepare a notice that grading or construction work will commence. This notice shall be posted at the site and mailed to all owners and occupants of property within 300 feet of the exterior boundary of the project site as shown on the latest equalized assessment roll. The notice shall include a list of contact persons with name, title, phone number and area of responsibility. The person responsible for maintaining the list shall be included. The list shall be kept current at all times and shall consist of persons with authority to indicate and implement corrective action in their area of responsibility. The names of individuals responsible for noise and litter control, tree protection, construction traffic and vehicles, erosion control, and the 24-hour Page 14 • emergency number, shall be expressly identified in the notice. The notice shall be re-issued with each phase of major grading and construction activity. A copy of all notices shall be concurrently transmitted to the Community Development Department. A list of the names and addresses of the property owners noticed, and a map identifying the area noticed shall accompany the notice. E. At least 30 days prior to the issuance of a grading permit, a plan shall be submitted to the Zoning Administrator for review and approval, addressing construction noise, dust, litter and construction traffic, along with specific measures to address these impacts. Any violation of the approved program or applicable ordinances shall require an immediate work stoppage. If necessary, construction work shall not be allowed to resume until an appropriate construction bond has been posted. F. The Applicant shall not interfere with existing neighborhood traffic flows. An on-site area in which to park earth-moving equipment and employee vehicles shall be provided. G. The worksite shall be maintained in an orderly fashion. Following the cessation of construction activity, all construction debris shall be removed from the site. H. All chemicals and petroleum products stored on-site during construction shall be within a bermed containment area or other appropriate facility. The handling, storage and disposal of any hazardous materials used on the site will be in accordance with a business plan (or equivalent) on file with the County Health Services Department, Hazardous Materials Division. All refueling and vehicle maintenance activity shall be located away from the creek corridors. Street Names 43. At least 30 days prior to filing the Final Map, proposed street names (public and private) shall be submitted for review by the Community Development Department, Graphics Section (Phone #335-1270). Alternate street names should be submitted. The Final Map cannot be certified by the Community Development Department without the approved street names. Page 15 Residential Design 44. At least 30 days prior to the issuance of building permits the applicant shall submit, for review and approval of the Zoning Administrator, revised residential elevations showing the building height from finish pad (building height not to exceed 35 feet from finished pad) and revised garage doors, the design of which breaks the mass of the door up. Paint color samples shall also be submitted for review and approval. Deed Disclosure regarding Second Story Decks 45. At least 10 days prior to the recording of the map the applicant shall submit a deed disclosure for review and approval of the Zoning Administrator. The purpose of the deed disclosure is to inform the buyer that second story decks are not allowed on the homes that back up to Las Trampas Creek. The statement shall be recorded concurrently with the map. Construction and Demolition Debris 46. At least 30 days prior to the issuance of the building and/or Demolition Permit(s), the developer shall submit a "Debris Recovery Plan" demonstrating how they intend to recycle, reuse or salvage building materials and other debris generating from the demolition of existing building and/or the construction of new buildings. At least 30 days prior to the final inspection of the first residential unit not including models, the developer shall submit a completed "Debris Recovery Report" documenting actual debris recovery efforts including the quantities of recovered and landfilled materials) that resulted from the project. PUBLIC WORKS RECOMMENDED CONDITIONS OF APPROVAL FOR SUBDIVISION 04-8939 Applicant shall comply with the requirements of Title 8, Title 9, and Title 10 of the County Ordinance Code. Any exceptions must be stipulated in these Conditions of Approval. Conditions of Approval are based on the Revised Vesting Tentative Map received by the Community Development Department on January 26, 2006. COMPLY WITH THE FOLLOWING CONDITIONS OF APPROVAL PRIOR TO RECORDATION OF THE FINAL MAP. ANY OF THE FOLLOWING CONDITIONS OF APPROVAL NOT SPECIFICALLY LISTED UNDER EITHER Page 16 PHASE 1 OR PHASE 2 SHALL BE APPLICABLE TO BOTH PHASES AND MUST BE SATISFIED PRIOR TO RECORDATION OF THE FINAL MAP FOR PHASE 1 AND/OR PHASE 2. General Requirements: 47. In accordance with Section 92-2.006 of the Ordinance Code, this subdivision shall conform to all applicable provisions of the Subdivision Ordinance (Title 9). Any exceptions there from must be specifically listed in this conditional approval statement. The drainage, road and utility improvements outlined below shall require the review and approval of the Public Works Department and are based on the Revised Vesting Tentative Map received by the Community Development Department on January 26, 2006. 48. Improvement plans prepared by a registered civil engineer shall be submitted to the Public Works Department, Engineering Services Division, along with review and inspection fees, and security for all improvements required by the County Ordinance Code for the conditions of approval of this Subdivision. These plans shall include any necessary traffic signage and striping plans for review by the Transportation Engineering Division. Roadway Frontage Improvements (Paulson Lane): Phase 1 (Lots 4-19) 49. Applicant shall construct curb, four-foot six-inch sidewalk, and necessary longitudinal and transverse drainage, and street lighting along the entire south side of Paulson Lane. The applicant shall construct these frontage improvements to conform to existing curb and gutter and shall extend from the intersection of Olympic Boulevard and Paulson Lane to the easternmost limit of the public portion of Paulson Lane. A standard driveway depression shall be constructed at the existing driveway access serving the Vuich and intervening properties 50. Applicant shall install street lights on Paulson Lane. The final number and location of the lights will be determined by Public Works. Phase 2 (Lots 1-3 & 20-22) 51. Applicant shall construct a street-type connection with minimum 20-foot radii curb returns in lieu of a standard driveway depression at the proposed intersection of "A" Street and Paulson Lane, as shown on the revised vesting tentative map. 52. Applicant shall construct a curb ramp on each curb return along the project frontage of Paulson Lane to conform to current County curb ramp standards. A detectable warning Ssurface (e.g. truncated domes) shall be installed on the curb ramps. Page 17 Private Roadway Improvements (On-Site): Phase 1 53. Applicant shall construct an on-site roadway system that meets current County private road standards with a minimum traveled way width of 20 feet within a 21-foot wide access easement and an additional 5-foot wide public utility easement (PUE) on each side, as shown on the revised vesting tentative map. Access rights to use the entire on- site roadway system shall be granted to all properties within Phase 2. 54. Applicant shall construct a turnaround at the end of"A" Street (near Lot 14) as shown on the revised vesting tentative map, subject to the review and approval of Public Works and the Fire District. 55. Applicant shall construct a temporary turnaround at the end of"A" Street (near Lot 18) to serve Phase 1, as shown on the revised vesting tentative map, subject to the review and approval of Public Works and the Fire District. This temporary turnaround may be removed and access easement encompassing the turnaround quitclaimed after construction of Phase 2 is complete and through access is provided via proposed "A" Street. 56. Applicant shall record a deed notification to inform all future property owners that "A" Street may be extended westerly, through Phase 2, in the future to Paulson Lane. 57. No gate shall be installed along the on-site roadway system until such time that an adequate turnaround is provided at the terminus of Paulson Lane, subject to the review of the Public Works Department. Phase 2 58. Applicant shall extend the private roadway system constructed as part of Phase 1 to Paulson Lane as shown on the revised vesting tentative map. The on-site roadway system shall meet current County private road standards with a minimum traveled way width of 20 feet within a 21-foot wide access easement and an additional 5-foot wide public utility easement (PUE) on each side. Access rights to use the entire on-site roadway system shall be granted to all properties within Phase 1. Access to Adjoining Property: Proof of Access 59. Applicant shall furnish proof to Public Works of the acquisition of all necessary rights of way, rights of entry, permits and/or easements for the construction of off-site, temporary or permanent, public and private road and drainage improvements. Page 18 • Encroachment Permit 60. Applicant shall obtain an encroachment permit from the County's Application and Permit Center for construction of driveways or other improvements within the right of way of Paulson Lane. Site Access 61. Applicant shall relinquish abutter's rights of access along the project frontage of the public portion of Paulson Lane, with the exception of the private road and driveway intersections shown on the revised vesting tentative map. Road Dedications: Phase 1 62. The Public Works Department will consider a request for the vacation of public road right of way for Paulson Lane, as shown on the revised vesting tentative map. The applicant shall submit a letter to the Public Works Department, Real Property Division, requesting the County to initiate the vacation process of the specific road right of way. Phase 2 63. Applicant shall dedicate a public access easement over the private road at the intersection of the private road and Paulson Lane to provide a turnaround for public access. The limit of dedicated easement shall accommodate current Public Works and Fire District design standards for a "pikehead" turnaround. Sight Distance: 64. Applicant shall provide adequate sight distance at the intersections of the proposed private road and Paulson Lane for a through traffic design speed of 35 miles per hour. Landscaping, walls, fences, signs, or any other obstructions must be placed to maintain adequate sight distance at these intersections. Phase 1 65. Applicant shall provide adequate sight distance at the on-site private roadway intersection for a through traffic design speed of 15 miles per hour. Landscaping, walls, fences, signs, or other obstructions must be placed to maintain adequate sight distance. Page 19 Parking 66. "No Parking" signs and pavement markings shall be installed along the proposed private road and turnarounds, subject to the review and approval of Public Works. Phase 1 67. Parking shall be prohibited along one side of Paulson Lane, which has a road width of 28 feet. "No Parking" signs shall be installed as necessary along Paulson Lane, subject to the review and approval of Public Works. Maintenance of Facilities: 68. Applicant shall develop and enter into a maintenance and plan of operation agreement that shall insure that all common areas and open space, the on-site private roadway system, private landscaped areas, private drainage facilities, any private street lights, and retaining walls throughout Phase 1 and Phase 2 shall be maintained by the future property owners, for the review and approval of the Public Works and Community Development Departments. 69. Applicant shall record a Statement of Obligation, in the form of a deed notification, to inform all future property owners of their legal obligation and specific responsibilities to maintain all common areas and open space, the on-site private roadway system, private landscaped areas, private drainage facilities, any private street lights, and retaining walls throughout Phase 1 and Phase 2. Pedestrian Facilities: 70. Curb ramps shall be designed and constructed in accordance with current County standards. A detectable warning surface (e.g. truncated domes) shall be installed on all curb ramps. 71. The applicant shall design all public and private pedestrian facilities in accordance with Title 24 (Handicap Access), the Americans with Disabilities Act (ADA), and current County standards. This shall include all sidewalks, paths, driveway depressions, and curb ramps. Underground Utilities: 72. All new and existing utility distribution facilities shall be installed underground along the project frontage of Phasel and Phase 2 and internal to both phases. i Page 20 s • Street Lights: 73. Applicant shall apply for annexation to County Service Area L-100 Lighting District by submitting: a letter of request; a metes and bounds description; and pay the current LAFCO fees. Annexation shall occur prior to filing the Final Map. The applicant shall be aware that this annexation process must comply with State Proposition 218 requirements, which state that the property owner must hold a special election to approve the annexation. This process may take approximately 4-6 months to complete. Annexation into CSA L-100 does not include transfer of ownership or maintenance of street lighting on private roads. Drainage Improvements: Collect and Convey 74. Applicant shall collect and convey all storm water entering and/or originating on this property without diversion and within an adequate storm drainage facility, to an adequate natural watercourse having a definable bed and banks, or to an existing adequate public storm drainage system which conveys the storm waters to an adequate natural watercourse, in accordance with Division 914 of the Ordinance Code. • Phase 1 75. All storm drainage systems constructed as part of Phase l shall be adequately sized to accommodate storm water runoff from both Phase 1 and Phase 2 to the ultimate point of discharge. Miscellaneous Drainage Requirements: 76. Applicant shall design and construct all storm drainage facilities in compliance with the Ordinance Code and Public Works Design Standards. 77. Applicant shall prevent storm drainage from draining across the sidewalk(s) and driveway(s) in a concentrated manner. 78. Any surface or subsurface storm drain facility within the subdivision conveying runoff from private streets or more than one parcel shall be installed within a minimum 10- foot wide private storm drain easement. 79. Applicant shall construct an adequate access road and pads extending from proposed A Street to the existing Flood Control District easements over Las Trampas Creek and associated outfall structure, as shown on the revised vesting tentative map and to the satisfaction of the Flood Control District. The access shall be of adequate width to allow for necessary equipment required to enter and maintain the outfall structure. An Page 21 appropriate turnaround shall be constructed at the terminus of the access road, as shown • on the revised vesting tentative map. An easement to the County and Flood Control District shall be recorded to allow access from Paulson Lane to the existing Flood Control District easements over Las Trampas Creek and associated outfall structure. Creek Structure Setback: 80. The applicant.shall relinquish "development rights'' over that portion of the site that is within the structure setback area of Las Trampas Creek. The creek structure setback area shall be determined by using the criteria outlined in Chapter 914-14, "Rights of Way and Setbacks," of the County Ordinance Code. "Development rights" shall be conveyed to the County by grant deed. Provision "C.3" of the NPDES Permit: 81. This project shall fully comply with the County's Stormwater Management and Discharge Control Ordinance, the Stormwater C.3 Guidebook, and the requirements of the Regional Water Quality Control Board. As part of these requirements, the applicant shall incorporate Best Management Practices (BMPs) to the maximum extent practicable into the design of this project, implement them and provide for perpetual operation and maintenance for all treatment BMPs. 82. A Stormwater Control Plan date stamped received October 24, 2005 by the Public • Works Department was reviewed and determined to be preliminarily complete. Although the Stormwater Control Plan has been determined to be preliminarily complete, it is subject to revision in the future during the preparation of improvement plans as necessary to bring it into full compliance with C.3 stormwater requirements. The applicant shall submit to the Public Works Department a final approved Stormwater Control Plan that has been certified and stamped by a licensed, Professional Civil Engineer, Architect, or Landscape Architect. 83. All construction plans (including but not limited to: site, improvement, structural, mechanical, architectural, building, grading and landscaping plans) shall comply with the preliminarily approved Stormwater Control Plan (SWCP) date stamped received by Public Works on October 24, 2005 or any subsequently revised SWCP, the County's Stormwater Management and Discharge Control Ordinance, the "C.3 Guidebook" and the requirements of the Regional Water Quality Control Board. All construction plans shall include details and specifications necessary to implement all measures of the SWCP, subject to the review and approval of the County. To insure conformance with the SWCP, the applicant shall submit a completed "Construction Plan C.3 Checklist" indicating the location on the construction plans of all elements of the SWCP as described in the "C.3 Guidebook". Page 22 • 84. All non-self-retaining pervious/landscaped areas within the project shall be factored into Table 2 of the Treatment BMP Sizing Worksheet, based on the appropriate runoff factor, to detennine the required size of each treatment BMP/IMP. 85. All water quality features shall be located within public road rights of way or public utility easements to allow County access for any future inspection and/or maintenance purposes. 86. Any water features that are designed to retain water for longer then 72 hours shall be subject to the review of the Contra Costa Mosquito & Vector Control District. 87. Prior to building permit final and issuance of a Certificate of Occupancy, the applicant shall provide an Operation and Maintenance (O&M) plan and execute any agreements identified in the SWCP, which pertain to the transfer of ownership and/or long-term maintenance of storm water treatment or hydrograph modification BMPs. 88. Applicant shall provide cost estimates for the complete financing and perpetual maintenance of the water quality features proposed with this application for the review and approval of the Public Works Department. This estimate shall include all long term costs associated with these water quality features including, but not limited to, Operation and Maintenance, financing, inflation indexing, and replacement costs. • 89. Applicant shall cooperate fully in the formation of financing mechanisms (e.g. Benefit Assessment District) to insure that all costs associated with the perpetual Operation & Maintenance, administration and reporting of these water quality features (including costs associated with all required County administration and reporting) are paid for by the property owners that are or will be benefiting from this development. Phase I 90. All treatment BMPs/IMPS constructed within Phase 1 shall be adequately sized per C.3 requirements to treat, at a minimum, all storm water runoff generated by Phase 1. Storm Water Pollution Prevention Plan: 91. Prior to ground disturbance, the applicant shall prepare a Storm Water Pollution Prevention Plan (SWPPP) to mitigate construction related impacts and submit it to the Regional Water Quality Control Board. The SWPPP shall be kept on-site at all times and shall be amended whenever there is a change in construction or operations which may affect the discharge of significant quantities of pollutants to surface waters, ground waters, or a municipal separate storm sewer system. • Page 23 National Pollutant (stem Discharge Elimination S NPDES : g Y ) 92. The applicant shall be required to comply with all rules, regulations, and procedures of the National Pollutant Discharge Elimination Systems (NPDES) for municipal, construction and industrial activities as promulgated by the California State Water Resources Control Board, or any of its Regional Water Quality Control Boards (San Francisco Bay Region or Central Valley Region). Compliance shall include developing long-term best management practices (BMP's) for the reduction or elimination of storm water pollutants. The project design shall incorporate, wherever feasible, the following long-term BMP's in accordance with the Contra Costa County Clean Water Program for the site's storm water drainage: - Minimize the amount of directly connected impervious surface area. - Stencil advisory warnings on all catch basins and storm drains. - Construct concrete driveway weakened plane joints at angles to assist in directing runoff to landscaped/pervious areas prior to entering the street curb and gutter. - Shared trash bins shall be sealed to prevent leakage, OR, shall be located within a covered enclosure. - Prohibit or discourage direct connection of roof and area drains to storm drain systems or through-curb drains. - Shallow roadside and on-site grassy swales. - Distribute public information items regarding the Clean Water Program to buyers. - Other alternatives, equivalent to the above, as approved by the Public Works Department. Advisory Notes A. Although the Stormwater Control Plan date stamped received October 24, 2005 by Public Works has been determined to be preliminarily complete, it remains subject to future revision, as necessary, during preparation of improvement plans in order to bring it into full compliance with C.3 stormwater requirements. Failure to update the SWCP to match any revisions made in the improvement plans may result in a substantial change to the County approval, and the project may be subject to additional public hearings. Revisions to California Environmental Quality Act (CEQA) documents may also be required. This may significantly increase the time and applicant's costs associated with approval of the application. B. Comply with the Bridge/Thoroughfare Fee Ordinance requirements for the South Walnut Creek Area of Benefit as adopted by the Board of Supervisors. This fee must be paid prior to issuance of a building permit. Page 24 • C. The project lies within the 100-year flood boundary as designated on the Federal Emergency Flood Rate Maps. The applicant should be aware of the requirements of the Federal Flood Insurance Program and the County Flood Plain Management Ordinance (Ordinance No. 2000-33) as they pertain to future construction of any structures on this property. D. This project may be subject to the requirements of the Department of Fish and Game. It is the applicant's responsibility to notify.the Department of Fish and Game, P.O. Box 47, Yountville, California 94599, of any proposed construction within this development that may affect any fish and wildlife resources,per the Fish and Game Code. E. This project may be subject to the requirements of the Army Corps of Engineers. It is the applicant's responsibility to notify the appropriate district of the Corps of Engineers to determine if a permit is required, and if it can be obtained. F. The applicant shall comply with Fire District requirements. G. The applicant shall comply with EBMUD requirements. H. The applicant shall comply with Sanitary District requirements. I. 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L S A ~FIGURE I N o 1000 2000 Paulson Lane >eer Project Location SOURCE:USGS 7.5'QUAD-Welnul Creek,Ca. J ACC C5311G\Loco tion.cdr(12112/05) o / C: i Ud wN i / \ o 4 \ e� N\ ' NIA z o \ '°h: � •'�$ km in %/// .. .•., .'FIAth — .. 3N1710 5NaSj Foo Zw 55�o ry m o e Gso b 'RR � 3NI1107 m � Ffi m Am i on �� F � F& xe. J W _o y Rv z7 u TAI- lz R z I zm �gj I UIzm o cl L•: LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION ENVIRONMENTAL FACTORS POTENTIALLY AFFECTED The environmental factors checked below would be potentially affected by this project, involving at least one impact that is a"Potentially Significant Unless Mitigation Incorporated" as indicated by the checklist on the following pages. V Aesthetics ❑ Agricultural Resources ■ Air Quality ■ Biological Resources ■ Cultural Resources ■ Geology/Soils ■ Hazards&Hazardous Material: ■ Hydrology/Water Quality ❑ Land Use/Planning ❑ Mineral Resources ■ Noise ❑ Population/Housing ❑ Public Services ❑ Recreation ❑ Transportation/Traffic ❑ Utilities/Service Systems ■ Mandatory Findings of Significance • P:\PaulsonLane\FinallnitialStudy.doc(3/1412006) 7 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION • MARC 11 2006 PAULSON LANE SUBDIVISION DETERMINATION On the basis of this initial evaluation: ID I find that the proposed project COULD NOT have a significant effect on the environment, and a NEGATIVE DECLARATION will be prepared. ■ I find that although the proposed project could have a significant effect on the environment, there will not be a significant effect in this case because revisions in the project have been made by or agreed to by the project proponent. A MITIGATED NEGATIVE DECLARATION will be pre- pared. ❑ I find that the proposed project MAY have a significant effect on the environment, and an ENVIRONMENTAL IMPACT REPORT is required. ❑ I find that the proposed project MAY have a"potentially significant impact" or"potentially signifi- cant unless mitigated" impact on the environment, but at least one effect 1) has been adequately analyzed in an earlier document pursuant to applicable legal standards, and 2)has been addressed by mitigation measures based on the earlier analysis as described on attached sheets. An ENVIRONMENTAL IMPACT REPORT is required, but it must analyze only the effects that remain to be addressed. • ❑ I find that although the proposed project could have a significant effect on the environment, because all potentially significant effects (a) have been analyzed adequately in an earlier EIR or NEGATIVE DECLARATION pursuant to applicable standards, and (b) have been avoided or mitigated pursuant to that earlier EIR or NEGATIVE DECLARATION, including revisions or mitigation measures that are imposed upon the proposed project,nothing further is required. b Signature Date John Oborne, Senior Planner Community Development Department, Contra Costa County r P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 8 L 8 A ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION ENVIRONMENTAL CHECKLIST Potentially Significant Potentially Unless Less Tban Significant Mitigation Significant No Impact Incorporated Impact Impact I. AESTHETICS. Would the project: a) Have a substantial adverse effect on a scenic vista? �] b) Substantially damage scenic resources, including, but not [] limited to, trees, rock outcroppings, and historic buildings within a State scenic highway? c) Substantially degrade the existing visual character or quality of the site and its surroundings? d) Create a new source of substantial light or glare which [� would adversely affect day or nighttime views in the area? Affected Environment: The project site is located adjacent to Las Trampas Creek and Interstate 680 and is within an unincorporated portion of Contra Costa County that borders the western city limits of Walnut Creek. In P P �' fact, the .site is. separated from downtown Walnut Creek only by Interstate 680. The site consists of approximately 4.6 acres, directly bounded on the southwest and southeast by Las Trampas Creek, and by Interstate 680 to the northeast. It is situated between Newell Avenue. and Olympic Boulevard and is immediately adjacent to the southbound on-ramp to Interstate 680 from Olympic Boulevard. Paulson Lane provides access to the property from Olympic Boulevard and is the only means of access. The site is on the northeastern fringe of an area characterized by established residential neighborhoods that feature lush, mature landscaping and homes arranged along tree-lined streets including Newell Avenue and Magnolia Way. Three private residences are located on Paulson Lane near Olympic Boulevard that are outside the proposed project limits. Existing residences are located on the project site. This development consists of five main residences plus several other structures including four carports, one garage, four sheds, one trailer, one unidentified building, various driveways, concrete patios, decks, and a swimming pool. At least one of the existing buildings is two stories high. Overhead utility lines supported by wood poles are present within the project site. Street lights occur along the adjacent freeway on-ramp and along Interstate 680,but not on Paulson Lane. Due to several factors, the site is visually isolated from surrounding areas that are accessible to the public. The site is not visible from Olympic Boulevard due to a hill near the western end of Paulson Lane and dense trees and brush along Las Trampas Creek. It is only partially visible from Interstate 680 due to topography and a 16-foot high sound wall that extends the length of the right shoulder of the southbound on-ramp to the highway. The site is not visible from Newell Avenue due to screening by existing homes, rI . P:\PaulsonLane\FinallnitialStudy.doc(31142006) 9 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION fences, and landscaping as well as trees and brush along the banks of Las Trampas Creek. The creek runs between the project site and the backyards of homes on Newell Avenue and Magnolia Way. The project site is visible from Paulson Lane, including the three residences at the end of the lane nearest Olympic Boulevard. Across the freeway on the edge of downtown Walnut Creek at the intersection of Alpine Road and Botelho Drive, views toward the project site include Interstate 680 and the sound wall along the southbound on-ramp. The tops of trees, some of which presumably are on the project site, are visible above the top of the sound wall. However, no direct view of the project site or the development that exists there now is possible from this location. From Magnolia Court, in one instance a view toward the project site occurs when looking between two houses. This view is through a filter of trees and brush, but gives some evidence of the existing residential development that is on the project site. However, no open views of the site occur. A total of 199 trees are located on the project site, of which approximately 98 trees are proposed to be removed (Figure 3). According to the Tree Survey and Report (Joseph McNeil, 2004), most of the trees proposed for removal are not "intrinsically desirable" based on species type, health, structure, and size. The trees to be removed are located at the interior of the site and primarily within the footprint of proposed new development. A number of desirable trees immediately surrounding the proposed new homes would be retained. Trees along Las Trampas Creek would also be retained and the vegetative buffer that exists along the creek between the proposed development and the existing neighborhood to the south and west would be preserved. However, at the rear of lot 8, next to the creek, are two larger trees, one is a dominant oak tree (#362); and the other tree is a redwood tree (#363). The two trees crowd into • each other and the arborist recommends that one of them be removed so that there is enough room for the surviving tree`to flourish. The arborist will determine which tree is desirable and may recommend removal of the other one. Tables 1 and 2 summarize the. species and trunk diameters of the trees scheduled for removal. (Note: These tables do not include either tree 4362, a 36" oak tree or tree# 363, a 30"redwood tree noted above.) Table 1: Diameter Range of Trees Scheduled For Removal 2gg. 1-5.9 inches 7 6-10.9 inches 47 11-15.9 inches 18 16-20.9 inches 12 21-25.9 inches 7 26-30.9 inches 2 31-35.9 inches 0 . 36-40.9 inches 1 3 41-45.9 inches 0 46-50.9 inches 2 P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 10 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARC 11 2006 PAULSON LANE SUBD ]VISION Table 2: Summary of Tree Species Scheduled for Removal ................................ ... .............. :::....:.:..::.:... Coast Live Oak 35 Mexican Fan Palm 18 Valley Oak 9 Coast Redwood 5 Canary Island Date Palm 5 Lombardy Poplar 4 Deodar Cedar 2 European Olive 2 Incense Cedar 2 California Fan Palm 2 Silver Wattle 2 Glossy Privet 2 Western Cottonwood 1 Weeping Willow 1 California Bay I Mulberry 1 Box Elder 1 California Black Walnut 1 Holly I Loquat 1 Queen Palm 1 �) Aleppo Pine I TOTAL NUMBER OF TREES 98 Discussion: a) Have a substantial adverse effect on a scenic vista? The Contra Costa County General Plan identifies scenic resources in the County, including major ridges and waterways. The proposed project site consists of gently sloping terrain with suburban development set among numerous trees of various types including various non-native species. The project site is not in the vicinity of the scenic resources identified in the General Plan. Further, the proposed development would generally be unseen from surrounding areas that are accessible to the public;there would be no impacts to scenic vistas. b) Substantially damage scenic resources, including, but not limited to, trees, rock outcroppings, and historic buildings within a State scenic highway? The project site is approximately 'h mile from the intersection of Highway 24 and Interstate 680. Highway 24 is a designated State Scenic Highway'. However, the project site is not visible from any portion of Highway 24 due to distance and screening by topography, vegetation, and structures including highway-related structures. The proposed project would not substantially damage scenic resources within a State scenic highway. ' California Department of Transportation,California Scenic Highway Program - http://www.dot.ca.gov/hq/LandArch/seenic/schwy I.html P:\PaulsonLaneTinallnitialStudv.doc(3/142006) 1 I C � v o :,�.',,i_..-.�.a,: .. 4~�'..r •K'•, j��x•• .. 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CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION c) Substantially degrade the existing visual character or quality of the site and its surroundings? The proposed project would result in development of the site with 22 residences and associated infrastructure. The site is currently developed with residential uses, but at a.lower density than proposed. The areas that surround the project site are-suburban or urban in visual character. While the proposed project would modify the current appearance of the site,the resulting visualcharacter would be similar in kind to that which currently.exists(suburban residential).Further,the project site is substantially screened from surrounding,nearby areas.that are accessible to the public. The proposed project would result in the removal of approximately 98 trees; roughly half the number that presently exists on the site. While the removal of.existing trees has the potential to impact the site's visual quality, most of the trees that would.be:ramoved are not intrinsically desirable according to the Tree Survey & Report .(Joseph McNeil, 2004)..The Contra Costa County Tree Protection Ordinance encourages the preservation of trees measuring 6.5 inches diameter at breast height (dbh) in or adjacent to riparian,foothill woodland,or oak.savanna areas,or that are part of a stand of four or more trees. According to the Tree Mitigation Plan prepared for the project (Camp & Camp Associates, 2005), 214 trees of various species and`size,.including native species, will be planted as part of the proposed development, resulting:in;6 iiet,gain;:in the totalnumber of trees on the site as compared to existing conditions (Figure 4)Ample� lenfation.of:the Tree Mitigation Plan would reduce potential aesthetic impacts of removing existing trees to less than significant levels, although in most cases it will take several years for the trees that are'planted to reach the same relative size as those to be removed. d) Create a new source of substantial light or glare which would•adversely affect day or nighttime views in the area? Some night lighting on the project site presently occurs since.residential,uses exist there now. In addition, the freeway on-ramp and Interstate 680 immediately adjacent to the site are illuminated at night by standard highway lighting. The proposed project would represent.an increase in night lighting since more homes would exist on the.site. Implementation of Mitigation Measure AES-1 below would reduce this potential impact to a level below significance. The proposed project would not create a new source of substantial glare in the area. Mitigation Measures AES-1: Lighting Control. All outdoor lighting associated with the proposed development shall be designed and located to.minimize ambient light levels for any given application, consistent with public safety standards. Lighting shall be placed in areas of pedestrian activity and at building entrances, and shall be minimized elsewhere. Ornamental, pedestrian scale lighting fixtures shall be utilized to the degree possible. Area lighting shall be directed downward with no splay of lighting directed offsite. 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CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION • Potentially Significant Potentially Unless Less Than Significant Mitigation Significant No Impact Incorporated Impact Impact II. AGRICULTURAL RESOURCES. In determining whether impacts to agricultural resources are significant environmental effects, lead agencies may refer to the California Agricultural Land Evaluation and Site Assessment Model (1997) prepared by the California Dept. of Conservation as an optional model to use in assessing impacts on agriculture and farmland.Would the project: a) Convert Prime Farmland, Unique Farmland, or Farmland ❑ ❑ ❑ of Statewide Importance (Farmland), as shown on the maps prepared pursuant to the Farmland Mapping and Monitoring Program of the California Resources Agency, to a non-agricultural use? b) Conflict with existing zoning for agricultural use, or a ❑ ❑ ❑ Williamson Act contract? c) Involve other changes in the existing environment which, ❑ ❑ ❑ due'to their location or nature, could result in conversion of Farmland to non-agricultural use? Affected Environment: The project site is classified as "Urban and Built-Up Land" according to the Farmland Mapping and Monitoring Program of the State Department of Conservation. The project site is not zoned for agricultural uses and is not operated under a Williamson Act contract. Discussion: a) Convert Prime Farmland, Unique Farmland, or Farmland of Statewide Importance (Farmland), as shown on the maps prepared pursuant to the Farmland Mapping and Monitoring Program of the California Resources Agency, to a non-agricultural use? The proposed project would not convert agricultural land to non-agricultural uses. b) Conflict with existing zoning for agricultural use, or a Williamson Act contract? The proposed project would not conflict with existing zoning or a Williamson Act contract. c) Involve other changes in the existing environment which, due to their location or nature, could result in conversion of Farmland to non-agricultural use? Implementation of the proposed project would not result in the extension of infrastructure into an undeveloped area,the development of urban uses on a greenfield site, or other physical changes that would result in the conversion of farmland to non-agricultural uses. P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 15 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION • Potentially Significant Potentially Unless Less Than Significant Mitigation Significant No Impact Incorporated Impact Impact III. AIR QUALITY. Where available,the significance criteria established by the applicable air quality management or air pollution control district may be relied upon to make the fol- lowing determinations.Would the project: a) Conflict with or obstruct implementation of the applicable air quality plan? b) Violate any air quality standard or contribute substantially ❑ ' to an existing or projected air quality violation? c) Result in a cu nulatively considerable net increase of any criteria pollutant for which the project region is non- attainment under an applicable federal or State ambient air quality standard (including releasing emissions which exceed quantitative thresholds for ozone precursors)? d) Expose sensitive receptors to substantial pollutant concen- trations? e) Create objectionable odors affecting a substantial number O of people? Affected Environment: An Air Quality Analysis was prepared for the proposed project by LSA Associates, Inc. in December 2005 and is available for public review at the Contra Costa County Planning Department. The discussions below summarize the findings of the Air Quality Analysis. The project site is located in unincorporated Contra Costa County which is part of the San Francisco Bay Air Basin (SFBAB) and is under the jurisdiction of the Bay Area Air Quality Management District (BAAQMD). Both the State of California (State) and the federal government have established health- based ambient air quality standards (AAQs) for seven air pollutants, including ozone (03), carbon monoxide (CO), nitrogen dioxide (NOA sulfur dioxide (SO2),particulate matter (PMIo, PM2.5), and lead. The State has also set standards for a number of other air pollutants and has established a set of episode criteria for 03, CO, NO2, S02i and PMIo representing periods of short-term exposure to air pollutants that actually threaten public health. The California Clean Air Act provides BAAQMD with the authority to manage transportation activities at indirect sources (e.g., motor vehicles at an intersection, a mall and on highways) as well as stationary sources of pollution through its jurisdictional area. Direct emissions from motor vehicles are regulated by the Air Resources Board(ARB). BAAQMD maintains ambient air quality monitoring stations throughout its portion of the SFBAB. The air quality monitoring station closest to the project site is the Concord station. These air quality data are representative of the ambient air quality standards in the project area. CO, SO2, and NO, levels have not exceeded either State or federal standards in the past three years. 03, PMIo, PM2.5 levels almost never exceed their respective 1-, 8-, and 24-hour standards: however, PMIo has exceeded the State annual PAPaulsonLaneTinallnitia]Study.doc(3/14/2006) 16 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION standard in each of the past three years, and PM2.5 exceeded it once. Neither pollutant has recently exceeded the federal annual standard. Discus's ion: a) Conflict with or obstruct implementation of the applicable air qualityplan? An air.quality..plan describes air pollution control strategies to be implemented by a city, county, or region classified as a non-attainment area. The main purpose of.an air quality .plan is to bring the area into compliance with the requirements of federal and State air quality standards. To bring the San Francisco.Bay Area.region into attainment, the Bay Area Air Quality Management District (BAAQMD)has developed the 2001 Ozone Attainment Plan and the 2000 Clean Air Plan(CAP). The air quality plans use the assumptions and projections of local planning agencies to determine control strategies for regional compliance status. Since the plans are based on local General Plans, projects that are ..deemed .consistent with the applicable General Plan are usually found to be consistent with the air quality plans. Development of the proposed project would not significantly change the overall buildout scenario for Contra Costa County envisioned in the County's General Plan. The proposed project would.not conflict with or obstruct implementation of the 2001 Ozone Attainment Plan or the 2000 Clean Air Plan(CAP). b) Violate any air quality standard or contribute substantially to an existing or projected air quality violation? Air pollutant emissions associated with the proposed project would occur over the short term in association with construction activities such as grading and vehicle/equipment use. Long-term emissions would result from vehicle tris associated with use of the project site. The following P P J g discussion.describes potential air,quality violations that could occur as a result of. construction equipment exhaust emissions; fugitive dust; long-term vehicular emissions; and local carbon monoxide hot spots. Construction Equipment Exhaust Emissions. Air quality impact would occur during construction of the proposed project from soil disturbance and equipment exhaust. Major sources of emissions during grading and site preparation include (1) exhaust emissions from construction vehicle's; (2) equipment and fugitive dust generated by construction vehicles and equipment traveling over exposed surfaces; and (3) soil disturbances from grading and backfilling. Implementation of Mitigation Measure AIR-1 would reduce potential impacts to a level below significance. Long-Term Emissions..The proposed project would result in both stationaryand mobile sources of long-term air emissions. The stationary source emissions from the residential uses would come from the consumption of natural gas. The 22 single-family homes would add approximately 268 daily trips and 22 AM peak hour trips and 22 PM peak hour trips to the local roadways. The net increase in long-term vehicular emissions generated by the proposed project would not exceed the BAAQMD's operations thresholds and would have a less-than-significant impact on local or regional air quality.No mitigation measures are required. Local CO Hot Spots. Vehicular. trips associated with the proposed project would contribute congestion at intersections and along roadway segments in the project vicinity. Localized air quality impacts would occur when emissions from vehicular traffic increase in local areas as a result of the proposed project. The primary mobile source pollutant of local concern is carbon monoxide(CO), • P:\PaulsonLane\FinalInitialStudv.doc(3/14/2006) 17 L9A ASSOCIATES, INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION which is a direct function of vehicle idling time caused by traffic flow conditions. CO transport is extremely limited; it disperses rapidly with distance from the source under normal meteorological conditions. Under certain extreme meteorological conditions, CO concentrations proximate to a congested roadway or intersection may reach unhealthy levels affecting local sensitive receptors (residents, school children, the elderly, hospital patients, etc.). Typically, high CO concentrations are associated with roadways or intersections operating at unacceptable levels of service or with extremely high traffic volumes. Intersections in the project area are currently operating at acceptable levels of service and none of these intersections would exceed federal and State standards for either one-hour or the eight-hour CO concentrations. The proposed project would contribute at most a 1.9 ppm increase to the one-hour and a 1.3 ppm to the either-hour CO concentrations at these intersections. No CO hot spots would occur; therefore, the proposed project would have no significant impact on local air quality for CO. c) Result in a cumulatively considerable net increase of any criteria pollutant for which the project region is non-attainment under an applicable federal or State ambient air quality standard (including releasing emissions which exceed quantitative thresholds for ozone precursors)? As described above in Section III.b, the proposed project would result in temporary increases or minimal long-term increases in air pollutants, these increases would not result in a cumulatively considerable net increase of any air pollutants. d) Expose sensitive receptors to substantial pollutant concentrations? Construction of the proposed project may expose surrounding land uses to airborne particulates and fugitive dust, as well as a small quantity of pollutants associated with the use of construction equipment (e.g., diesel-fueled vehicles and equipment). Implementation of Mitigation Measure AIR-1, described below, would reduce construction-related emissions to a less-thanLsignificant level. As discussed in Section III.b, the proposed project would not result in any long-term air quality impacts. Therefore, nearby sensitive receptors would not be exposed to substantial pollutant concentrations resulting from project construction. While the construction of the project itself will not expose sensitive receptors to substantial concentrations, the residences will be potentially exposed to significant air contaminant emissions from vehicles operating on the adjacent I-680. Historical'air quality data show that existing carbon monoxide (CO) levels for the project area and the general vicinity do not exceed either State or federal ambient air quality standards (AAQS). A screening health risk assessment was conducted of the impact of particulate matter resulting from diesel exhaust from vehicles operating on I-680. The analysis was performed according to BAAQMD's Health Risk Screening Analysis Guidelines and is included as part of the Air Quality Analysis prepared by LSA Associates,.Inc. (2005). The study was performed using the EPA-approved TSCREEN3 computer model. There would be long-term operational emissions from the diesel-powered trucks operating on I-680. The primary health risk from heavy-duty trucks emissions is diesel particulate exhaust. The results of the analysis are shown in Table 1. Even with the conservative modeling technique used, the nearest residences to the freeway would be exposed to an unmitigated inhalation cancer risk of no more than 0.18 in 1 million, less than the BAAQMD threshold of 10 in '1 million. The chronic HI would be 0.0001, less than the BAAQMD threshold of 1.0. Therefore, no significant health risk would occur from project-related truck traffic, and no mitigation is necessary. P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 18 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION • Table 3: Health Risk Assessment Results Cancer Risk Chronic Hazard number in I million Index Nearest Residences 0.18 0.0001 Threshold 10 1.0 Source:LSA Associates,Inc,December 2005. e) Create objectionable odors affecting a substantial number of people? Some objectionable odors may be generated from the operation of diesel-powered construction equipment and/or asphalt paving during the project construction period. However, these odors would be short term in nature and would not result in permanent impacts to surrounding land uses, including sensitive receptors in the vicinity of the project site. Therefore, no significant impacts related to objectionable odors would result from the proposed project. Mitigation Measures- AIR-1: Control Measures for Construction Emissions of PMto. The "Basic Measures" and the "Enhanced Measures" listed in Table 1 shall be incorporated into the construction plans for the proposed project. The "Optional Measures" listed in Table 1 shall be incorporated if further emission reductions are deemed necessary by the County. The County shall review these construction plans to ensure these measures have been incorporated. Table 4: Feasible Control Measures for Construction Emissions of PM10 Basic Control Measures—The following controls should be implemented at all construction sites. • Water all active construction areas at least twice daily. Cover all trucks hauling soil,sand,and other loose materials or require all trucks to maintain at least two feet of freeboard. • Pave,apply water three times daily,or apply(non-toxic)soil stabilizers on all unpaved access roads,parking areas and staging areas at construction sites. Sweep daily(preferably with water sweepers)all paved access roads,parking areas and staging areas at construction sites. Sweep streets daily(Preferably with water sweepers)if visible soil material is carried onto adjacent public streets. Enhanced Control Measures—The following measures should be implemented at construction sites greater than four acres in area. All"Basic"control measures listed above. Hydroseed or apply(non-toxic)soil stabilizers to inactive construction areas. Enclose,cover,water twice daily or apply(non-toxic)soil binders to exposed stockpiles(dirt,sand,etc.). Limit traffic speeds on unpaved roads to 15 mph. Install sandbags or other erosion control measures to prevent silt runoff to public roadways. Replant vegetation in disturbed areas as quickly as possible. Optional Control Measures=The following control measures are strongly encouraged at construction sites that are large in area,located near sensitive receptors or which for any other reason may warrant additional emissions reductions. Install wheel washers for all exiting trucks,or wash off all trucks and equipment leaving the site. Install wind breaks,or plant trees/vegetative wind breaks at windward side(s)of construction areas. Suspend excavation and grading activity when winds exceed 25 mph. Limit the area subject to excavation,gradinE and other construction activity at any one time. Source: BAAQMD CEQA Guidelines, 1999. P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 19 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION Potentially Significant Potentially unless Less Than Significant Mitigation Significant No Impact Incorporated Impact Impact IV. BIOLOGICAL RESOURCES. Would the project: a) Have a substantial adverse effect, either directly or through habitat modifications, on any species.identified as•a candi- date, sensitive, or special status species in local or regional plans, policies, or regulations, or by the California Depart- ment of Fish and Game or U.S.Fish and Wildlife Service? b) Have a substantial adverse effect on any riparian habitat or other sensitive natural community identified in local or regional plans, policies, regulations or by the California Department of Fish and Game or U.S. Fish and Wildlife Service? c) Have a substantial adverse effect on federally protected wetlands as defined by Section 404 of the Clean Water Act (including, but not limited to, marsh,.vernal pool, coastal, etc.) Through direct removal, filling, hydrological interrup- tion,or other means? d) Interfere substantially with .the movement of any native ❑ (] resident or migratory fish or wildlife species or with estab- lished native resident or migratory wildlife corridors, or impede the use of native wildlife nursery sites? e) Conflict with any local policies or ordinances protecting biological resources, such as a tree preservation policy or ordinance? f) Conflict with the provisions of an adopted Habitat Conser- vation Plan,Natural Community Conservation Plan or other approved local,regional,or State habitat conservation plan? Affected Environment: A Biological Resources Assessment was completed within the project site by Mosaic Associates LLC in October 2004. As recommended by Mosaic Associates, an additional rare plant survey was conducted in April 2005 by Wood Biological Consulting. Both the Assessment and spring survey results summary are available for public review at Contra Costa County. The project site occupies a relatively level terrace above Las Trampas Creek, which borders the parcels on the southwest and southeast. Vegetation within the study area includes mixed riparian woodland along the banks of Las Trampas Creek, mixed oak woodland with a non-native grassland understory in the western portion of the site, and landscape plants and trees associated with homes and other structures across much of the site. A total of 199 trees were identified on site, with approximately 98.proposed for removal to accommodate the subdivision project. Mixed Riparian Woodland. Mixed riparian woodland habitat is found along the banks of Las Trampas Creek. The dense woodland canopy is comprised of a combination of native riparian species PAPaulsonLane\Finallnitia]Study.doc(3/14/2006) 20 LSA ASSOCIATES.'INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUB13 IVISION and landscaped trees. Dominant native tree species include cottonwood (Populus fremontii), California bay (Umbellularia californica), black walnut (Juglans nigra), arroyo willow (Arroyo lasiolepsis), alder (Alder rhombifolia), California buckeye (Aesculus californica), valley oak (Quercus lobata), and coast live oak (Quercus agrifolia). Large patches of non-native giant reed (Arundo donax) are along the creek, as well as areas where English ivy (Hedera helix) has grown rampant,up the tree trunks that line the creek bank. Oak Woodland with a Non-native Grassland Understory. Mixed valley oak and coast live oak woodland is present on the site in. remnant patches. The project site historically supported oak- woodland, akwoodland, but much of.this habitat has been replaced by residential development and landscaping. The understory supports non-native grassland, much of which has been mowed, particularly along Olympic Boulevard. The characteristic non-native annual grasses that are present in the undeveloped upland areas of the site include wild oat(Avena fatua)and ripgut brome(Bromus diandrus). Residential Landscaping. Residential and landscaped development is present across much of the site. Some of the introduced.plant.species include coast redwood (Sequoia sempervirens), Deodar cedar (Cedrus deodara), Monterey pine (Pinus radiata), .oleander (Nerium oleander), .Frerich broom (Genista monspessulana), gum tree (Eucalyptus sp.), Mexican fan palm`(Washingtonia robusta), and various fruit trees,such as orange, lemon,almond, and plum. Because of the large number of trees on site,the project area does provide suitable nesting and foraging habitat for a variety of birds, both passerines and raptors. Several tall trees, such as eucalyptus and oak, may provide nesting habitat for special-status birds, such as.Cooper's hawk (Accipiter cooperi i), and red- shouldered hawk Buteo lineatus . Shrubs and small trees on site also provide nesting habitat for a variety ( ) P g t5 of birds. Other special status bird species that have the potential to occur on site include American kestrel (Falco sparverius), rufous hummingbird (Selasphorus rufus), red-tailed hawk (Buteo jamaicensis), great horned owl(Bubo virginianus), and great blue heron(Ardea herodias). Special status bat species,such as the California mastiff bat (Eumops perotis californicus), pallid bat (Antrozous pallidus), and Townsend big-eared bat(Plecotus townsendii townsendii), have a low potential for occurring in the project area and may roost in trees or other structures currently on site. The rare plant survey conducted by Mosaic Associates in September 2004 resulted in the determination that the following special status plant species had a low potential for occurrence on the project site: bent- flowered fiddleneck (Amsinckia lunaris), Mt. Diablo fairy-lantern(Calochortus pulchellus),round-leaved filaree (Erodium macrophyllum), fragrant fritillary (Fritilaria liliacea), Contra Costa goldfields (Lasthenia conjugens), and robust monardella (Monardella villosa ssp. globosa). A follow-up rare plant survey conducted on April 12, 2005 by Wood Biological Consulting yielded no findings of these spring- blooming(or any other) special status plant species on site. Las Trampas Creek provides suitable habitat for the California red-legged frog (Rana aurora draytonii) and western pond turtle (Actinomys marmorata) and both have been recorded upstream in the Las Trampas Creek watershed. The western pond turtle is a California species of special concern, and the California red-legged frog is a federally-listed, threatened species and a state species of special concern. A focused survey for red-legged frogs was conducted in September 2004 by Mosaic Associates. Red- legged frogs and western pond turtles were not detected during this survey, most likely due to the abundance of raccoons and other predatory animals that live in the area. r: P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 21 LSA ASSOCIATES: INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION • MARC 11 1006 PAULSON LANE SUBDIVISION The following policies from the Contra Costa County General Plan's Conservation Element (Chapter 8) are relevant to this project: Vegetation and Wildlife Policies, Section 6: 8-21 The planting of native trees and shrubs shall be encouraged in order to preserve the visual integrity of the landscape,provide habitat conditions suitable for native wildlife, and ensure that a maximum number and variety of well-adapted plants are sustained in urban areas. Water Resources Policies, Section 12: 8-78 Where feasible, existing natural waterways shall be protected and preserved in their natural state, and channels which already are modified shall be restored. A natural 4waterway is defined as a. waterway which can support its own environment of vegetation, fowl, fish and reptiles, and which appears natural. 8-79 Creeks and streams determined to be important and irreplaceable natural resources shall be retained in their natural state whenever possible to maintain water quality, wildlife diversity, aesthetic values,and recreation opportunities. 8-80 Wherever possible, remaining natural watercourses and their riparian zones shall be restored to improve their function as habitats. . 8-85 Natural watercourses shall be integrated into new development in such a way that they are accessible and provide a visual element. 8-86 Existing native riparian habitat shall be preserved and enhanced by new development unless public safety concerns require removal of habitat for flood control or other public purposes. 8-89 Setback areas shall be provided along natural creeks and streams in areas planned for urbanization. The setback areas shall be of a width adequate to allow maintenance and to prevent damage to adjacent structures,the natural channel and associated riparian vegetation. The setback area shall be a minimum of 100 feet; 50 feet on each side of the centerline of the creek. 8-91 Grading, filling and construction activity near watercourses shall be conducted in such a manner as to minimize impacts from increased runoff, erosion, sedimentation, biochemical degradation, or thermal pollution. 8-92 Revegetation of a watercourse shall employ native vegetation, providing the type of vegetation compatible with the watercourse's maintenance program and does not adversely alter channel capacity. Discussion: a) Have a substantial adverse effect, either directly or through habitat modifications, on any species identified as a candidate, sensitive, or special status species in local or regional plans, policies, or regulations, or by the California Department of Fish and Game or U.S. Fish and Wildlife Service? P:\PaulsonLane�FinalInitialStudy.doc(3/14/2006) 22 LSA ASSOCIATES, INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION _ MARCH 2006 PAULSON LANE SUBDIVISION Special Status Plant. Species. The spring rare plant survey conducted by Wood Biological Consulting yielded no findings of the.six special-status plants that were designated by Mosaic Associates as having a low potential for occurrence on site. The botanist conducting the spring survey also determined that there was no suitable habitat existing on site for these five of the six special-status species: bent-flowered fiddleneck (Amsinckia lunaris), round-leaved filaree (Erodium macrophyllum), fragrant fritillary(Fritilaria liliacea), Contra Costa goldfields (Lasthenia conjugens), and robust monardella(Monardella villosa ssp.globosa). Marginally suitable habitat is present on.site for.the Mt. Diablo fairy-lantern (Calochortus pulchellus), yet none were found on site,during the spring survey. Any individual plants existing on site would have been detectable during the spring.survey. Therefore, project impacts to special-status plant species would be less than significant. Special Status Animal Species. No special status animals were detected during the surveys conducted for the Biological Resources Report. However, in assessing the habitat affinities and reported distributions for twenty-one special status animals, it was determined that 13 species have the potential to occur on the project site. Three species were determined to have a high potential to occur on the site, including red-shouldered hawk (Buteo lineatus), American kestrel (Falco sparverius), and rufous hummingbird (Selasphorus rufus). Two species have a moderate potential to occur on.the site, including Cooper's hawk (Accipiter cooperii) and red-tailed hawk (Buteo jamaicensis). Eight species were-determined.to have a low potential for occurrence on site. These include monarch butterfly (Danaus plexippus), western pond turtle (Actinomys marmorata), California red-legged frog(Rana aurora draytonii),great horned owl(Bubo virginianus), great blue heron (Ardea herodias), pallid bat (Antrozous .pallidus), Townsend big-eared bat (Plecotus -. townsendii townsendii)and California mastiff baterotis umo s Etali .ornicus ( P P .f ) Red-Legged Frogs and Western Pond Turtles. Las Trampas Creek provides suitable habitat for red-legged frog.and western pond turtle. However,the potential for either species to be detected and to persist in the reach of Las Trampas Creek adjacent to the proposed residential development is greatly reduced by the presence on site of numerous raccoons and other species that prey upon frogs and turtles, and the extensive development both upstream and downstream of the project site, which compounds the impact of predatory species on the potential for red-legged frogs and the western pond turtle to occur. However, construction of the proposed project has the potential to significantly impact California-red legged frog and/or western pond turtle, if present during construction. Implementation of Mitigation Measures 13I0-1 through BIO-3 would reduce the potential for project-related impacts to a level below significance. Passerines and Nesting Raptors.The Paulson Lane project has the potential to disturb nests or nesting.behavior of migratory birds or birds of prey if site disturbance activities commence during the nesting season, and are situated in close proximity to occupied nests. Construction of the project has the potential to impact tree-nesting migratory birds and/or birds of prey. This would be considered a significant impact. Implementation of Mitigation Measure 1310-4 would reduce the potential for project-related impacts to a level below significance. Special-Status Bats. There is a low potential for 3 species of special status bats—pallid bat, Townsend's big-eared bat and California mastiff bat—to roost.within existing structures or in tree cavities on the project site. Demolition of structures and tree removal has the potential to r . P:\PaulsonLane\FinalInitialStudy.doc(3/142006) 23 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION • MARCH 2006 PAULSON LANE SUBnIVISION disturb bat roosts if present. This would be considered a significant impact. Implementation of the Mitigation Measure BI0-5 would reduce the potential for project-related impacts to a level below significance. b) Have a substantial adverse effect on any riparian habitat or other sensitive natural community. identified in local or regional plans, policies, regulations or by the California Department of Fish and Game or U.S. Fish and Wildlife Service? The adjacent Las Trampas Creek has jurisdictional characteristics that include the year round presence of water and the presence of wetland vegetation. Based on these characteristics, the stream is considered to be waters of the United States and waters of the State. As such, it falls under the jurisdiction of Section 404 of the Clean Water Act administered by the United States Army Corps of Engineers (Corps) and under state regulations administered by the Regional Water Quality Control Board (RWQCB). The California Department of Fish and Game (CDFG) will also have jurisdiction over any activities within the bank of the creek under Section 1602 of the Fish and Game Code. Alterations of the bed and/or bank of Las Trampas Creek would require approvals/permits from one or more of these agencies depending on the proposed work. The proposed project includes the construction of a storm drain outfall to Las Trampas Creek. Construction of the storm drain outfall to Las Trampas Creek may require the removal of riparian vegetation, and has the potential to result in the ideposition of fill in waters of the United States and State. If the outfall to Las Trampas Creek is situated below the creek top of bank, a Streambed Alteration Agreement from CDFG would be required. If the outfall requires the placement of fill within waters of the United States,permits from the Corps and RWQCB would also be required. Construction of the storm drain outfall and riparian restoration efforts have the potential to result in the removal of riparian trees and shrubs and may require the excavation and/or fill of waters of the United States and State. These would be considered potentially significant impacts.Implementation of Mitigation Measures BIO-6 and BI0-7 would reduce the potential for project-related impacts to a level below significance. c) Have a substantial adverse effect on federally protected wetlands as defined by Section 404 of the Clean Water Act (including, but not limited to, marsh, vernal pool, coastal, etc.) through direct removal,filling, hydrological interruption, or other means? ° See Section IVb above. d) Interfere substantially with the movement of any native resident or migratoryfish or wildlife species or with established native resident or migratory wildlife corridors, or impede the use of native wildlife nursery sites? The project will not.interfere with the movement of native fish or wildlife, nor will.it reduce the suitability of the riparian habitat along Las Trampas Creek as a movement corridor because project improvements along Las Trampas Creek are limited to construction of an outfall and riparian restoration. e) Conflict with any local policies or ordinances protecting biological resources, such as a tree pre- servation policy or ordinance? The proposed project would result in the removal of approximately 98 trees (out of approx. 200 total) from the project site. As required by the Contra Costa County Tree Protection and. P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 24 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED:NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION Preservation Ordinance,.a tree survey was prepared in December 2004 for the development project by Joseph McNeil, consulting arborist. The survey report provides a description of all trees on the site that are six inches in diameter and larger. The report recommends trees for removal based on the following criteria:poor health,structure,or position in a grove,and size and species type. A Tree Mitigation and Existing Tree Plan (Figure 4) was prepared for the proposed project (Camp & Camp Associates, 2005). As required by the Contra Costa County Tree Protection and Preservation Ordinance, 214 trees would be planted to mitigate for trees to be removed (Camp & Camp Associates, 2005). Implementation of Mitigation Measures BIO-8 through BID-10 would ensure that impacts related to tree removal would be reduced to a level below significance. Mitigation Measure 13I0-11, in addition to the mitigation measures referenced in sections IVb and IVc, will ensure that the project landscaping and construction adjacent to Las Trampas Creek will be consistent with the Vegetation and Wildlife and Water Resources Policies contained within the Conservation Element of the Contra Costa County General Plan. fi Conflict with the provisions of an adopted Habitat Conservation Plan, Natural Community Conser- vation Plan or other approved local, regional, or State habitat conservation plan? The proposed project would not conflict with the.provisions of an adopted Habitat Conservation Plan, Natural Community Conservation Plan, or other approved local, regional, or state habitat conservation plan. Mitigation Measures: BI0-1: California Red-Legged Frog and Western Pond Turtle Pre-Construction Surveys. Pre- construction surveys for California red-legged frogs and western pond turtles shall be conducted not more than 48 hours prior to the commencement of site disturbances. If California red-legged frogs are detected in an area where there is potential for a take during construction, the U.S. Fish and Wildlife Service shall be consulted to determine the appropriate course of action. If western pond turtles are detected, and they are likely to be disturbed during outfall construction or riparian restoration, .they shall be relocated to a suitable reach of creek upstream or downstream from the project. BI0-2: Silt Fencing. Prior to any site disturbance, silt fencing or equivalent shall be installed along the top of bank to prevent the movement of amphibians or reptiles from the riparian area onto the project site. The .bottom of this fencing shall be buried and shall be checked and maintained weekly by theconstruction team to ensure that no gaps develop through which amphibians or reptiles could pass. This fencing shall be removed once construction of the proposed project is complete. BI0-3: Personnel Training. Prior to any site disturbance, a qualified biologist shall conduct a training session on California red-legged frogs and western pond turtles for construction personnel. BI04: Passerines and Nesting Raptors. If site disturbance is commenced between February 1 and August 31, a pre-construction survey shall be conducted by a qualified wildlife biologist. If nests of either migratory birds or birds of prey are detected on or adjacent to the site, the applicant shall consult with the CDFG to determine size of a suitable buffer in which no new r P:\PaulsonLane\FinalInitial5tudy.doe(3/14/2006) 25 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION A • MARCH 2006 PAULSON LANE SUBDIVISION site disturbance is permitted until August 31, or the qualified biologist determines that the young are foraging independently. If more than 15 days elapses between the survey and site disturbance, the survey shall be repeated. BI0-5: Bat Roosts. An assessment of the suitability of the trees and buildings on site to support special-status bats shall be conducted by a qualified biologist. All potential roost areas, suitable trees and structures shall be examined for evidence `of bat activity. If there is evidence that bats have been roosting within structures or trees on the site that would be removed for the proposed project, a mitigation'plan that addresses avoidance of impacts during the roosting season,humane eviction, and.partial dismantling of an occupied structure or tree shall be prepared. BI0-6: Regulatory Compliance. A Streambed Alteration Agreement shall be acquired prior to construction of the storm drain outfall to Las Trampas Creek if it is situated below creek top of bank. If the placement of fill within waters of the U.S. is required for the outfall, a 404 permit from the U.S. Army Corps of Engineers and a 401 certification from the Regional Water Quality Control Board must be issued prior to the outfall construction. BI0-7: Creek Protection. The area within the,structure setback along Las Trampas Creek shall have grant deed of development rights to the County, which will restrict any building of structures in this area. B10-8: Tree Protection Zones. Tree protection zones shall be established around trees to be preserved. Traffic, parking, material storage, or wash-out of equipment shall be prohibited in these zones throughout the duration of the project. Tree protection zones shall be fenced with temporary 6-foot chain link fence. Fencing shall be in places prior to demolition, including removal of trees not to be preserved. When it is necessary to work within a protected zone, or to install landscaping, such work shall be done in cooperation with the arborist. If it is necessary to open the fence temporarily,the arborist shall be notified.A sign,provided by the arborist, shall be posted every 100 feet along the temporary fencing. BI0-9: Tree Protection. As much as possible, natural leaf litter shall be allowed to accumulate under all existing trees that will be preserved, as natural mulch.No pruning shall occur except for specific reasons, under the direction of the arborist. During construction, an irrigation regimen shall be established for trees near construction activity.No paints or solvents shall be discarded on site, and excess concrete, stucco. and mortar shall be disposed of off-site. BIO-10: Root Protection. Areas where roots may potentially be cut shall be monitored. Cuts for trenches or walls that are adjacent to or in protected tree zones shall be covered and moistened daily until they are backfilled. BIO-l1: Native Trees. Native trees and shrubs shall be incorporated into landscape plans developed for the project wherever possible and shall be compatible with existing trees on site. P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 26 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION I' Potentially Significant Potentially Unless Less Than Significant Mitigation Significant No Impact Incorporated Impact Impact V. CULTURAL RESOURCES. Would the project: a) Cause a substantial adverse change in the significance of a historical resource as defined in§15064.5? b) Cause a substantial adverse change in the significance of an archaeological resource pursuant to§15064.5? c) Directly or indirectly destroy a unique paleontological 0 resource or site or unique geologic feature? d) Disturb any human remains, including those interred out- side of formal cemeteries? Affected Environment: A Phase I Cultural Resources Evaluation was prepared for the project site by Archeo-Tec, Consulting Archaeologists in June 2004 and is available for public review at the Contra Costa County Planning Department. The cultural resources study consisted of archival literature review, consultation with the Native American Heritage Commission, and an on-site archaeological surface reconnaissance of the project site.No prehistoric or historical:archaeological sites were identified within the project site. Discussion: a) Cause a substantial adverse change in the significance of a historical resource as defined in §15064.5? According to the cultural resource report prepared for the proposed project (Archeo-Tec, Consulting Archaeologists, 2004), there are no known significant historic resources or events associated with this site. b) Cause a substantial adverse change in the significance of an archaeological resource pursuant to §15064.5? As described above, no prehistoric or historical archaeological sites were identified on the project site or within the immediate vicinity. However, presently undetected cultural resources of significance could be discovered during grading and excavation work associated with construction. Implementation of Mitigation Measure CULT-1 would reduce potential impacts to unanticipated discoveries to a level below significance. c) Directly or indirectly destroy a unique paleontological resource or site or unique geologic feature? There are no known paleontological resources, or unique geologic feature or sites on the project site, or within the immediate vicinity. The project is proposed in a location that has already been significantly disturbed. Therefore, the probability of finding additional, unknown paleontological resources is minimal. However, it is possible that previously unknown paleontological resources could be discovered during grading and excavation work associated with the new construction. Implementation of Mitigation Measure CULT-2 would reduce potential impacts associated with disturbance to paleontological resources to a level below significance. r. P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 27 LSA AS S OCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION d) Disturb any human remains, including those interred outside offormal cemeteries? There are no known human remains within the proposed project area. The project is proposed in a location that-has already been significantly disturbed due to the installation of the existing structures and underground utilities. Therefore, the probability of finding human remains is minimal. However, it is possible that previously unknown historic or prehistoric resources could be discovered during grading and excavation. work associated with the new .construction. Implementation of Mitigation Measure CULT-3 would reduce potential impacts to a level below significance. Mitigation Measures: CULT-1: Unanticipated Discoveries. If deposits of prehistoric or historic archaeological materials, including but not limited to charcoal, obsidian or chert flakes, grinding bowls, shell fragments, bone, pockets of dark, friable soils, glass, metal, ceramics, wood or similar debris, are discovered during grading, trenching, or other on-site excavation(s), earthwork within 100 feet of these materials shall be stopped until a professional archaeologist certified by the Registry of Professional Archaeologists (RPA) has had an opportunity to evaluate the significance of the find and suggest appropriate mitigation(s), as deemed necessary. CULT-2: Paleontological Resources. If paleontological resources are uncovered during ograding or other on-site excavation(s), earthwork within 100 feet of these materials shall be stopped until a certified professional archaeologist/paleontologist.has had an opportunity to evaluate the significance of the find and suggest appropriate mitigation(s),as deemed necessary. CULT-3: Native American Burials. If human remains are encountered, work within 25 feet.of the discovery shall be redirected and the County Coroner notified immediately. At the same time, an archaeologist shall be contacted to evaluate the situation. Project personnel shall not collect or move any human remains and associated materials. If the human remains are of Native American origin, the Coroner must notify the Native American Heritage Commission within 24 hours of identification. The Native American Heritage Commission will identify a Native American Most Likely Descendent (MLD) to inspect the site and provide recommendations for the proper treatment of the remains and associated grave goods. Upon completion of the evaluation, a report shall be prepared documenting the methods and results, as well as recommendations for the treatment of human remains and any associated cultural materials, as appropriate and in coordination with the recommendations of the MLD. The report shall be submitted to the City and the Northwest Information Center. Potentially Significant Potentially Unless Less Than Significant Mitigation Significant No Impact Incorporated Impact Impact VI. GEOLOGY AND SOILS. Would the project: a) Expose people or structures to potential substantial adverse effects,including the risk of loss,injury,or death involving: P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 28 LSA ASSOCIATES, INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION Potentially Significant Potentially Unless Less Than Significant Mitigation Significant No Impact Incorporated Impact Impact i) Rupture of a known earthquake fault,as delineated on the. ❑ ❑ ❑ most recent Alquist-Priolo Earthquake Fault Zoning Map issued by the State Geologist for the area or based on other substantial evidence of a known fault? Refer to Division of Mines and Geology Special Publication 42. ii) Strong seismic ground shaking? ❑ ❑ ❑ iii)Seismic-related ground failure,including liquefaction? ❑ ❑ ❑ iv)Landslides? ❑ ❑ ❑ b) Result in substantial soil erosion or the loss of topsoil? ❑ ❑ ❑ c) Be located on a geologic unit or soil that is unstable, or that ❑ ❑ ❑ would become unstable as a result of the project, and poten- tially result in on-or off-site landslide, lateral spreading,sub- sidence,liquefaction or collapse? d) Be located on expansive soil, as defined in Table 18-1-B of ❑ ❑ ❑ the uniform Building Code(1994), creating substantial risks to life or property? e) Have soils incapable of adequately supporting the use of sep- ❑ ❑ ❑ tic tanks or alternative waste water disposal systems where sewers are not available for the disposal of waste water? Affected Environment: A Geotechnical Report was prepared for the proposed project by Earthtec dated December 8, 2004 and is available for public review at the Contra Costa County Planning Department. The Contra Costa County Planning Geologist conducted a review of this report and prepared the following findings. Contra Costa County is located at the northern end of the Diablo Range of Central California, with the geology in the region being characterized by several northwest trending fault systems which divide the County into large.blocks of rock. The project site is not within an Alquist-Priolo Special Studies Zone designated by the State,however it could be subject to strong seismic ground shaking possible throughout the Bay Area.Nearby potentially active faults include the Calaveras Fault(southeast),the Hayward Fault (west), and the Concord Fault(northeast). The project site is located in an area underlain by alluvium that is younger than 2 million years old and consists mainly of unconsolidated gravel, sand, and clay deposits subject to redistribution by fluvial (stream)processes. Discussion: a) Expose people or structures to potential substantial adverse effects, including the risk of loss, injury, or death involving: i) Rupture of a known earthquake fault, as delineated on the most recent Alquist-Priolo Earthquake Fault Zoning Map issued by the State Geologist for the area or based on P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 29 LSA ASSOCIATES, INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 3006 PAULSON LANE SUBOIVIS1ON other substantial evidence of a known fault? Refer to Division of Mines and Geology Special Pub- lication 42; ii) Strong seismic ground shaking; iii)Seismic-related ground failure, including lique- faction; iv)Landslides? i) Fault Rupture. The nearest fault considered active by the California Geological Survey (formerly California Division of Mines and Geology) is the Concord fault, which is mapped approximately 5 miles northeast of the site; the Calaveras fault is. mapped approximately 5 '/ miles southeast of the site. No faults.are mapped through the site, however, rupture of nearby faults could result in related seismic impacts, as described below. ii) Groundshaking. According to the Contra Costa General Plan Safety Element (p. 10-23) the site is in an area rated "moderately low" damage susceptibility. The risk of structural damage from ground shaking is regulated by the building codes and County Grading Ordinance. The Uniform Building Code (UBC) requires use of seismic parameters which allow the structural engineering analysis for buildings to be based on soil profile types (see UBC, 1997, Volume 2, Div. 5, page 2-23). Quality construction, conservative design and compliance with building and grading regulations can be expected to keep risks .within generally accepted limits. Implementation of Mitigation Measures GEO-1 through GEO-3 would reduce potential risks associated with strong ground shaking to less than significant levels. iii) Ground Failure and Liquefaction. According to the Contra Costa General Plan Safety • Element (p. 10-15), the site is rated"generally moderate to low" liquefaction potential. Because risks are relatively low, qualitative geotechnical evaluation of this hazard is typically not required. Experience has indicated that in the "generally moderate to low" category only I acre out of every 1,000 acres has the unique set of conditions needed for liquefaction to be a hazard. The subsurface data presented in the Earthtec report indicates that the alluvial deposits are too clayey and too dense to liquefy. Therefore, implementation of the proposed project would not adversely impact persons or structures due to ground failure and liquefaction. iv) Landslides. With regard to landslides, the site has been mapped by the U.S. Geological Survey. The mapping of Nilsen (1975) indicates no slides within the area planned for. development or general vicinity. This interpretation is supported by the mapping of California Geological Survey (Saul, 1973). Implementation of the proposed project would not adversely impact persons or structures due to landslides. b) Result in substantial soil erosion or the loss of topsoil? According to the Soil Survey of Contra Costa County (1977), the risk of erosion is low, though construction activities have the potential to disrupt soil and cause erosion. However, construction specifications require the preparation of a storm water pollution plan (SWPPP) that would incorporate best management practices (BMPs) for erosion control that are recognized by the Regional Water Quality Control Board (RWQCB). An Erosion Control Plan would be required for issuance of a grading permit. The Erosion Control Plan would provide the details of the erosion control measures to be applied on the site and maintained throughout the winter rainy season. Implementation of a SWPPP and an Erosion Control Plan, submitted by the applicant and reviewed P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 30 LSA ASSOCIATES, INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION and approved by the County, would reduce potential impacts to soil erosion.or the.loss of topsoil to less than significant levels. c) Be located on a geologic unit or soil that is unstable, or that would become unstable as a result of the project, and potentially result in on- or off-site landslide, lateral spreading, subsidence, lique- faction or collapse? The County.Geologist's review of the existing geologic data indicates that the project is feasible. The details of the specific standards and criteria for site grading,drainage and foundation design are to be provided in the Final Geotechnical Report,which is routinely made a condition of approval. d) Be located on expansive soil, as defined in Table 18-1-B of the Uniform Building Code (1994), creating substantial risks to life or property? According to the Soil Survey of Contra Costa County (page 90, Table 6), the site soils can be expected to exhibit a moderate.to high expansion potential. Expansive soils shrink and swell as a result of moisture changes that can cause heaving and cracking of slabs-on-grade, pavements and structures founded on shallow foundations. Building damage due to volume changesassociated with expansive soils can be reduced by deepening the foundations to below the zone of moisture fluctuation. General foundation design criteria are provided by the Earthtec geotechnical report, which are intended to control/minimize damage. It should be recognized that expansive soils are an engineering issue, and not a land use or feasibility issue. Any new fill associated with the proposed project-would be subject to engineering and building standards for seismic integrity and if the native excavation does not meet.these standards, fill meeting the specific standards would be imported for the project. e) Have soils incapable of adequately supporting the use of.septic tanks..or alternative waste water disposal systems where sewers are not available for the disposal of waste water? Septic tanks and alternative wastewater disposal systems would not be installed on the project site. Therefore, implementation of the proposed project would not result in impacts to soils associated with the use of such wastewater treatment systems. Mitigation Measures: GEO-1: Final Geotechnical Report.At least 30 days prior to recordation of Final Map,the Applicant shall submit a final geology, soil, and foundation report meeting the requirements of Subdivision Ordinance Section 94-4.420 for review and approval by the Planning Geologist. Improvement, grading, and building plans shall carry out the .recommendations of the approved report. This report shall include evaluation of the potential for liquefaction, seismic settlement and other types of seismically-induced ground failure by recognized methods appropriate to soil conditions discovered during subsurface investigation. It shall also evaluate the hazard posed by expansive soils and provide appropriate recommendations for remediation of geotechnical/geologic hazards, along with specific standards and criteria for grading, foundation and drainage design that are sensitive to geologic constraints and UBC seismic parameters. • P:\PaulsonLane\FinalInitialStudy.doc(3/14/2006) 31 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARC • H 2006 PAULSON LANE SUBDIVISION GEO-2: Deed Acknowledgments. The Applicant shall record a statement to run with the deeds to the property acknowledging the approved geology, soil, and foundation report by title, author (firm), and date, calling attention to approved recommendations, and noting that the report is available from the seller. GEO-3: Engineered Slope Gradients. Engineeied slopes shall have gradients of 21/2:1 (or flatter). Where needed, retaining walls or reinforced earth shall be utilized with proper design. Potentially Significant Potentially. Unless Less Than Significant Mitigation Significant No Impact Incorporated Impact Impact VII. HAZARDS. Would the project: a) Create a significant hazard to the.public or the environ- ment through the routine transport,use,or disposal of haz- ardous materials? b) Create a significant hazard to the public or the environ- ment.through nviron-ment.through reasonably foreseeable upset and accident conditions involving the release of hazardous materials into the environment? c) Emit hazardous emissions or handle hazardous or acutely hazardous materials, substances, or waste within one- quarter mile of an existing or proposed school? d) Be located on a site which is included on a list of hazard- (] M U ous materials sites compiled pursuant to Government Code Section 65962.5 and, as a result,would it create a signifi- cant hazard to the public or the environment? e) For a project located within an airport land use plan or, ❑ L N where such a plan has not been adopted,within two miles of a public airport or public use airport, would the project result in a safety hazard for people residing or working in the project area? f) For a project located within the vicinity of a private air- U strip,would the project result in a safety hazard for people residing or working in the project area? g) Impair implementation of or physically interfere with an L adopted emergency response plan or emergency evacua- tion plan? h) Expose people or structures to a significant risk of loss, ❑ injury or death involving wildland fires, including where wildiands are adjacent to urbanized areas or where resi- dences are intermixed with wildlands? P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 32 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION • Affected Environment: An Environmental Site Assessment(ESA) was completed for the residential.site by ADR Environmental Group, Inc. (ADR) in September 2004. This ESA is available for public review at Contra Costa County. The discussions below summarize the findings of the ESA. The subject property is located in a residential and commercial.area.of Contra Costa County. -The area immediately surrounding the subject property consists of residential structures. Interstate Highway 680, then commercial properties:are to the north. No gas stations, manufacturing sites, industrial facilities, or dry cleaners were located in the immediate area.of the subject property. In addition, no pits, swales, or wetlands were observed on the subject property.A free-running stream is located along the southwest and southeast boundaries of the.subject property. . 'The site is currently developed with several residential structures, storage structures, and private automotive garages. From a review of historical information, it can.be concluded that the residential structures located on the project site were built in the 1930s. Prior to the 193Os, the site was structurally undeveloped. The .adjoining properties were historically undeveloped or sporadically utilized for agriculture until the 193Os. Residential structures have occupied the:adjoining properties since the 1950s. Interstate Route 680 was built on the northern adjoining property in the.1960s. At the time of the site'inspection, the majority of the subject property was residentially developed land with no significant hazardous material. storage. ADR did not.'observe any physical evidence of underground storage tanks (USTs) at the site, such as fill caps, vent pipes, fuel oil lines, or concrete pads. According to information supplied by the Contra Costa County Fire Department and the Contra Costa .1... County Department of Hazardous Materials, no USTs have been reported at the subject property. There was no evidence of existing petroleum aboveground storage tanks (ASTs) on site, and the subject property is not a recorded source of soil or groundwater contamination. A site specific Environmental Data Resources, Inc. (EDR)search found no recorded sites that may have impacted the property based on hydraulic gradient,site distance,regulatory status,or contamination considerations. The ESA prepared by ADR identified no evidence of recognized environmental conditions in connection with the subject property,with the exception of: • Suspect asbestos-containing material; and • Suspect lead-based paint. Discussion: a) Create a significant hazard to the public or the environment through the routine transport, use, or disposal of hazardous materials? Implementation of the proposed project would result in the development of new residences and associated infrastructure: Although small quantities of commercially-available hazardous materials could be used within the new residences consistent with residential uses, and. potentially for landscape maintenance within the project .site, these materials would not be used.in sufficient quantities to pose a threat to human or environmental health. While gas and diesel fuel would typically be used by the construction vehicles, Best Management Practices (BMPs) would be utilized to ensure that no construction-related fuel hazards occur. Therefore, implementation of the P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 33 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARC 11 2 00 6 PAULSON LANE SUHDTVISION proposed project would not create a significant hazard to the public or.the environment through the routine transport,use, or disposal of hazardous materials. As part of the building permit process, all plans are reviewed for compliance with applicable Building and Fire Department requirements,pursuant to the Uniform Building and Fire Codes, and all other related City requirements.No additional measures would be required. b) Create a significant hazard to the public or the environment through reasonably.foreseeable upset and accident conditions involving.the release of hazardous materials into the environment? Construction activities would include the use of ordinary equipment fuels and fluids..In the unlikely event of a spill, fuels would be controlled and disposed of in accordance with county and state regulations. Implementation of Mitigation Measure HAZ-1 would ensure that handling of materials during construction activities would not create a hazard to the public or the environment, thereby reducing potential impacts to less than significant levels. During on-site observations conducted by ADR,suspect asbestos-containing materials(ACM).were. identified,including, but not necessarily limited to: interior gypsum wallboard and joint compound. interior plaster, exterior stucco, window putty, exterior Transite(D ducting, interior spray-on ceiling fixture, rolled vinyl flooring, floor tile, and roofing materials. Based upon the age of the buildings observed on the property (pre-1978),it.is possible that painted.building surfaces contain lead-based paint. Demolition of the.existing structures on site could create a significant hazard to the public or the environment through the release of ACM and/or lead-based paint. Implementation of Mitigation Measure HAZ-2 would reduce potential impacts to less than significant levels. c) Emit hazardous emissions or handle hazardous or acutely hazardous materials, substances, or waste within one-quarter mile of an existing or proposed school? There is an existing school within 1/4 mile of the project site. Parkmead .School is located just southwest of the site, off of Olympic Boulevard. However, as described in Section VIIa, the proposed project includes the construction of residential units and would not result in the routine . use,transport, or disposal of substantial quantities of hazardous materials. d) Be located on a site which is included on a list of hazardous materials sites compiled pursuant to Government Code Section 65962.5 and, as a result, would it create a significant hazard to the pub- lic or the environment? The project site is not located on the list of hazardous materials sites prepared pursuant to Government Code Section 65962.5 and would not pose a significant health hazard to the public or environment. e) For a project located within an airport land use plan or, where such a plan has not been adopted, within two miles of a public airport or public use airport, would the project result in a safety hazard for people residing or working in the project area? The project site is not located within the boundary of any airport land use plan and would therefore not result in a safety hazard for people residing or working in the project area. Buchanan Airport, which is located approximately eight miles north, is the closest airport to the project site. f For a project located within the vicinity of a private airstrip, would the project result in a safety hazard for people residing or working in the project area? r RTaulsonLane\FinallnitialStudy.doc(3/14/2006) 34 LSA ASSOCIATES, INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION A MRCH 2006 PAULSON LANE SUED IVISION The project is not located within the vicinity of a private airstrip and would therefore not result in a safety hazard for people residing or working in the project area. g)' Impair implementation of or physically interfere with an adopted emergency response plan or emergency evacuation plan? The proposed project is the development of a residential site and associated infrastructure, it would not impair implementation or physically interfere with an adopted emergency plan or emergency evacuation plan. h) Expose people or structures to a significant risk of loss, injury or death involving.wildland fires, including where wildlands are adjacent to urbanized areas or where residences are intermixed with wildlands? ,The project site is in a suburban area and development of the proposed project would not expose people or structures to an increased risk of wildland fires. In addition, as part of the building permit process, all plans are reviewed for compliance with applicable Building and Fire Department requirements, pursuant to the Uniform Building and Fire Codes, and all other related County requirements. Mitigation Measures: HAZ-1: Hazardous Materials Management Plan. Prior to construction, the construction contractor shall prepare a Hazardous Materials Management Plan for approval by the County. The plan shall include specific information on how the Contractor intends to safely transport and store fuels, oils, coatings, and cement, and conduct fueling and equipment maintenance operations. !` In addition the plan shall describe measures to contain inrinsate resulting from the cleaning of equipment. Rinsate shall not be allowed to be discharged to the ground or to the creek but must be contained and disposed of.off site, at a location designated in the plan. The plan shall also include specific measures to be implemented in the event of a release of a hazardous material into water or onto land.The Contractor shall be required to have on hand at all times adequate absorbent materials and containment booms to handle a spill equivalent to the largest container of fuels or oil in their possession. HAZ-2: ACM and Lead-Based Paint Sampling. Sampling shall be conducted to determine the presence of absence of ACM and lead-based paint.An ACM Investigation shall be performed by an Asbestos Hazardous Emergency Response Act.(AHERA) certified inspector under Toxic Substances Control Act (TSCA) Title II and certified by Cal Occupational Safety Health Administration (OSHA) under State of California rules and regulations (California Code of Regulations, Section 1529). Surveys for lead-based paint shall be conducted prior to demolition of structures within the project area. Lead-based paint and ACM shall be ' remediated according to all applicable state and federal regulations. r P:\PaulsonLane\FinalInitialStudy.doc(3/14/2006) 35 LSAASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION Potentially Significant Potentially Unless Less Than . Significant Mitigation Significant No Impact Incorporated Impact Impact VIII. HYDROLOGY AND WATER QUALITY. Would. the project: a) Violate any water quality standards or waste discharge ❑ ❑ ❑ requirements? b) Substantially deplete groundwater supplies or interfere sub- ❑ ❑ ❑ stantially with groundwater recharge such that there would be a net deficit in aquifer volume or a lowering of the local groundwater table level (e.g., the production rate of pre- existing nearby wells would drop to a level which would not support existing land uses or planned uses for which permits have been granted)? c) Substantially alter the existing drainage pattern of the site ❑ ❑ ❑ or area, including through the alteration of the course of a stream or river, in a manner which would result in substan- tial erosion or siltation on-or off-site? d) Substantially alter the existing drainage pattern of the site ❑ ❑. ❑ or area, including through the alteration of the course of a stream or river, or-substantially increase the rate or amount of surface runoff in a manner which would result in flood- ing on-or off-site? e) Create or contribute runoff water which would exceed the ❑ ❑ ❑ capacity of existing or planned stormwater drainage sys- tems or..provide substantial additional sources of polluted runoff? f) Otherwise substantially degrade water quality? ❑ ❑ ❑ g) Place housing within a .100-year flood hazard .area as ❑ ❑ ❑ mapped on a federal Flood Hazard Boundary or Flood Insurance Rate Map or other.flood hazard delineation map? h) Place within a 100-year flood hazard area structures which ❑ ❑ ❑ would impede or redirect flood flows? i) Expose people or structures to a significant risk of loss, ❑ ❑ ❑ injury or death involving flooding, including flooding of as } a result of the failure of a levee or dam? j) Inundation by seiche,tsunami,or mudflow? ❑ ❑ ❑ Affected Environment: The project site is bounded on the southern and eastern sides of the site by Las Trampas Creek. A drop structure exists in Las Trampas Creek, behind Lot 10, and the creek flows beneath the overpass of Highway 680. The proposed 22 residences for this project would be situated above the top of bank and outside of the structure setback that will be established for the creek. P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 36 LSA ASSOCIATES, INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION Las Trampas Creek is a sub-watershed of Walnut.Creek,the most significant water body in central Contra Costa County. It is 12.37 miles in length and flows north and east along the project site toward San Ramon Creek. Walnut Creek is formed by the confluence of these two creeks, and the Walnut Creek watershed flows northward to Suisun Bay(CCCCWP 2004). Currently,.drainage sheet flows across the land and over the banks to the creek.Only partial yard drainage systems exist and those release onto the ground surface. The site is generally relatively flat and gently sloping and the streets do not generally exceed 2.5%. Discussion a) Violate any water quality standards or waste discharge requirements? The proposed project would include the construction of nine roadside bio-retention swales and five front-yard bio-planters to mitigate increased levels of stormwater runoff. Runoff from the roof and paved areas of 16 lots, as well as street runoff, will.be conveyed to one of the nine grassy (bio- retention) swales situated along the sides of the street. Runoff from the roof and paved areas of 2 lots will be conveyed to a bio-retention swale located inside the private drainage easement and will have access through a 15' Contra Costa County Flood Control District(CCCFCD) access easement, serving the drop structure. Swales remove pollutants primarily by filtering runoff slowly through an active layer of soil. Routine maintenance is needed toinsure that flow is unobstructed, erosion is prevented and:that soils are held together by plant roots and are biologically active. Because the remaining four lots are situated lower than the streetside swales, runoff frorn the roofs and paved areas of these four lots will be conveyed individually to five infiltration planters. Planter boxes capture runoff from downspouts or sheet flow from plazas and paved areas. The runoff briefly floods the surface of the box and then percolates through an active soils layer to drain rock below. A Storm Water Control Plan (SWCP) and Best Management Practices (BMPs) for the project has been prepared.by the project civil engineer and reviewed and approved by the County Public Works Department as part of the Grading and Improvement Plans. County inspection during site preparation and construction would confirm the implementation and on-going maintenance of the SWCP and BMPs and other pertinent County requirements related to water quality standards and waste discharge requirements. Implementation of Mitigation Measures HYDRO-1 through HYDRO-3 would ensure regulatory compliance and reduce potential impacts to less than significant levels. Implementation of Mitigation Measures BIO-6 and BIO-7 would ensure compliance with the applicable Water Resources Policies contained in the Contra Costa County General Plan and listed in Section IV of this document. b) Substantially deplete groundwater supplies or interfere substantially with groundwater recharge such that there would be a net deficit in aquifer volume or a lowering of the local groundwater table level (e.g., the production rate of pre-existing nearby wells would drop to a level which would not support existing land uses or planned uses for which permits have been granted)? The project would not result in direct additions or withdrawals to existing groundwater; the project would utilize the public water system. Therefore, impacts to groundwater supplies would be less than significant. P:1PaulsonLane\FinalInitialStudy.doc(3/14/2006) 37 LSA ASSOCIATES, INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 20 06 PAULSON LANE SUBDIVISION c) Substantially alter the existing drainage pattern of the site or area, including through the alteration of the course of a stream or river, in a manner which would result in substantial erosion or siltation on-'or off-site?. Las Trampas Creek borders 12 of the 22 lots included within the project area. Currently, the property drainage sheet flows downslope to the creek. The proposed bio-retention swales and infiltration planters will catch and treat the majority of the drainage generated by the site; however, these rear yard areas designated as Area 20 on the Storm Water Control Plan(SWCP)will continue to sheet flow over the banks and are not included as a treated area. The impact of erosion due to the continued, but significantly reduced, sheet flow will be minimal because.many trees with varied understories exist in these riparian areas above and on the creek bank and these riparian areas provide ample natural area to filter pollutants and silt fines.These areas will not be developed since they are regulated by the creek structural setback ordinance, in Title 9 of the County Ordinance. code. Additionally, if patios, walkways, roofs or any impervious surfaces are installed in the yards between the creek structural set back line and the-house, all drainage will flow to catch basins and be routed to the bio-retention facilities provided on the site. Therefore, given the information above, there would be no significant change in either drainage patterns or on-site or off-site effects from erosion and siltation. During construction, BMPs would be implemented consistent with-the stormwater permit issued by the RWQCB, so that on-site and off-site erosion and sedimentation would be controlled to the extent practicable. Implementation of Mitigation Measures HYDRO-1 through HYDRO-3 would ensure regulatory compliance and reduce potential impacts related to erosion and siltation to a level below significance. d) Substantially alter the existing drainage pattern of the site or area, including through the alteration of the course of a stream or river, or substantially increase the rate or amount of surface runoff in a manner which would result in flooding on-or off-site? The proposed project would develop the site with 22 residences and associated roadways, driveways and landscaping. The proposed project would increase the amount of impervious surface and thus increase the amount of surface runoff from the site. However,the proposed project would include eight bio-retention swales along the roadside and one within the outfall drainage easement to capture and filter stormwater runoff. Five infiltration planters would be constructed within those lots where slope prevents the conveyance of storm water to the roadside swales. This project has minimized roof areas by providing all two-story homes, which results in limited impervious surfaces. Driveway aprons to several homes are short in order to compensate for longer driveways. Most driveways are 18 feet in length, two feet shorter than required in conventional zoning. In addition,the small yard sizes of these homes limits the size of projects homeowners may construct in the future that would expand impervious surfaces, such as extended patios or concrete barbeque areas. An increase in impervious surfaces by yard expansion is also limited by the creek structure setback line and the existence of heritage trees. Additionally, the minimum five-foot side setbacks provide little opportunity for impervious expansion by the homeowner for storage areas normally utilized in wider side-yards. As compared to other projects with larger lots, the number of lots in this project creates less impervious surfaces per the number of dwelling units and per square:foot than a larger project due to the creek structure setback line and drip line coverage from protected trees. Implementation of P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 38 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION _ MARCH 2006 PAULSON LANE SUBDIVISION Mitigation Measures HYDRO-1 through HYDRO-3 would,. ensure regulatory compliance and reduce potential stormwater impacts to less than significant levels. e) Create or contribute runoff water which would exceed the capacity of existing or planned storm- water drainage systems or provide substantial additional sources of polluted runoff? Refer to Section VIII.d above. , Otherwise substantially degrade water quality? Implementation of Mitigation Measures HYDRO-1 through HYDRO-3 would ensure regulatory compliance and reduce potential water quality impacts to less than significant levels. Implementation of Mitigation Measures BIO-6 and BIO-7 would ensure compliance with the applicable Water.Resources Policies contained in the Contra Costa County General Plan and listed in Section IV of this document. g) Place housing within a 100 year flood hazard area as mapped on a federal Flood Hazard Bound- ary or Flood Insurance Rate Map or other flood hazard delineation map? Along-the southwestern and southeastern boundaries of the project site and Las Trampas Creek,the 100-year flood plain extends between approximately 10 and 50 feet into the project site. No development is proposed in this area. The rest of the site is in an area determined.to be outside the 500-year flood plain per the Contra Costa County FIRM map 060025-290D, effective December 2, 2003. The proposed project would not result in the placement of.housing in the 100—year flood hazard area. h) Place within a 100 year flood hazard area structures which would impede or redirect flood flows? See Section VIII.g. i) Expose people or structures to a significant risk of loss, injury or death involving flooding, includ- ing flooding of as a result of the failure of a levee or dam? Any flooding on the site would not expose people or structures to a significant risk of loss, injury, or death. j) Inundation by seiche, tsunami, or mudflow? The potential for the project site to be inundated by seiche, tsunami, or mudflow is less than significant. Mitigation Measures: HYDRO-1: BMP Operation and Maintenance. All accessible street inlets shall be marked with the words "No Dumping! Flows to Bay"and these.markings shall be periodically maintained or replaced. Inlets and pipes conveying stormwater to BMPs will be inspected and maintained as part of BMP Operation and Maintenance Plan. HYDRO-2: Swales and Infiltration Planers. Swales and infiltration planters shall be designed and constructed according to the criteria included in the Storm Water Control Plan for the project site. HYDRO-3: Final Landscape Plan Requirements. Final landscape plans shall consist of pest- resistant plants and plantings appropriate to site soils, slopes, climate, sun, wind, rain, P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 39 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION land use, air movement, ecological consistency and plant interactions. Final landscape plans shall be designed to minimize irrigation and runoff and to minimize use of fertilizers and pesticides that can contribute to stormwater pollution. Driveways and parking areas shall drain to bio-retention areas or swales and the plantings included within these areas shall be tolerant of the site specific soil and moisture conditions. Integrated Pest Management (IPM) and stormwater pollution prevention information shall be provided to new homeowners. Potentially Significant Potentially Unless Less Than Significant Mitigation Significant No Impact Incorporated Impact Impact IX. LAND USE AND PLANNING. Would the project: a) Physically divide an established community? ❑ ❑ ❑ b) Conflict with any applicable land use plan,policy, or regula- ❑ ❑ , ❑ tion of an agency with jurisdiction over.the project (includ- ing, but not limited to the general plan, specific plan, local coastal program, or zoning ordinance) adopted for the pur- pose of avoiding or mitigating an environmental effect? c) Conflict with any applicable habitat conservation plan or ❑ ❑ ❑ natural community conservation plan? Affected Environment: The General Plan designation for the project site is Single Family Residential-Medium which allows between 3.0 and 4.9 single family homes per acre. The project is zoned R-6 and R-10. Discussion: a) Physically divide an established community? The proposed project site is surrounded by primarily suburban residential uses. The proposed project can be characterized as infill and would not divide an established community. b) Conflict with any applicable land use plan,policy, or regulation of an agency with jurisdiction over the project (including, but not limited to the general plan, specific plan, local coastal program, or zoning ordinance) adopted for the purpose of avoiding or mitigating an environmental effect? As described above,the General Plan designation for the project site is Single Family Residential- Medium which allows between 3.0 and 4.9 single family homes per acre. The density of the proposed project is 6.4 units per net acre; therefore the proposed project includes an amendment to the General Plan Land Use Diagram to change the land use designation from Single Family Residential Medium to Single Family Residential—High, which allows for a density range of 5.0 to 7.2 units per net acre. With approval of the proposed project and associated General Plan Amendment, the proposed project would be consistent with the General Plan land use designation for the project site. PAPaulsonLaneTinallnitia]Study.doc(3/14/2006) 40 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBO IVISION The project site is zoned for development of residential uses consistent with the R-6 and R-10 zoning designations for the site.The proposed project includes a rezoning from R-6 and R-10 to P-1 Planned Unit District with a variance to allow application of the P-1 district for a residential development involving less than 5 (five) acres. With approval of the proposed project and associated zone change, the proposed project would be in conformance with the zoning regulations for the project site. The Contra Costa County General Plan contains several policies that-encourage the preservation of existing native riparian habitat (8-78, 8-80, 8-86, and 8-92) and are provided in the Biological Resources section of this document. The project does not propose to remove any riparian .vegetation along Las Trampas Creek; in fact, the Tree Mitigation and Existing Tree Plan(Figure 4) depicts the locations of 54 riparian corridor supplemental plantings that will be sited along the creek. Thus, the project is in accordance with the riparian preservation policies included in the Contra Costa County General Plan and no mitigation measures are necessary. The City of Walnut Creek's Creek Restoration and Trail Plan shows a trail connection along Las Trampas Creek to Olympic Boulevard. Although the future trail connection is shown in the City's Trail Master Plan, which was adopted in .1993, it is not .identified in any County planning document, including the County's General Plan(2005-2020). Additionally,the trail is not identified in the Contra Costa Countywide Bicycle and Pedestrian Plan. which was adopted in December of 2003 by the Contra Costa Transportation Authority, following an extensive collaborative.planning effort involving the nineteen cities in the County, the County, the East Bay Regional Park District; the Contra Costa Transportation Authority, and bicycle and pedestrian advocacy groups. The County is obligated by law to rely on policies in its own General Plan, or other plans to which it is a party to,as the basis upon which it requires dedications of easements for trail corridors.It is for this reason that the County is unable to find a policy basis to help establish the nexus between the requested extension of the trail,and the approval of the Paulson Lane project.. In addition, the topography of the site and location of surrounding roadways present challenges for using this site as an appropriate location for a trail that links downtown Walnut Creek to the Lafayette/Moraga trail. c) Conflict with any applicable habitat conservation plan or natural community conservation plan? The project site is not subject to a habitat conservation plan or natural community conservation plan. Mitieation Measures: None required. P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 41 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SURD]VISION Potentially Significant Potentially Unless Less Than Significant Mitigation Significant No Impact Incorporated Impact Impact X. MINERAL RESOURCES. Would the project: A) Result in the loss of availability of a known mineral resource ❑ [] that would be of value to the region and the residents of the State? b) Result in the loss of availability of a locally-important min- eral resource recovery site delineated on a local general plan, specific plan or other land use plan? Affected Environment: No known mineral resources are present at the project site. . Discussion: a) Result in the loss of availability of a known mineral resource that would be of value to the region and the residents of the State? No known mineral resources are present at the project site. Implementation of the proposed project would not result in the loss of availability of a known mineral resource. b) Result in the loss of availability of a locally-important mineral resource.recovery site delineated on a local general plan, specific plan or other land use plan? See Section X.a. Mitigation Measures: None required. Potentially Significant Potentially Unless Less Than Significant Mitigation Significant No Impact Incorporated Impact Impact XI. NOISE. Would the project result in: a) Exposure of persons to or generation of noise levels in excess ❑ �] �] of standards established in the local general plan or noise ordinance,or applicable standards of other agencies? b) Exposure of persons to or generation of excessive ground borne vibration or ground borne noise levels? c) A substantial permanent increase in ambient noise levels in the project vicinity above levels existing without the project? d) A substantial temporary or periodic increase in ambient noise ❑ I] levels in the project vicinity above levels existing without the project? P:\PaulsonLaneTinallnitialStudy.doc(3/14/2006) 42 LSA ASSOCIATES, INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 FAULSON LANE SUBD IVISION Potentiallv Significant Potentially Unless Less Than Significant Mitigation Significant No Impact .Incorporated Impact Impact e) For a project located within an airport land use plan or,where 0 such a plan has not been adopted,within two miles of a pub- lic airport or public use airport, would the project expose .people residing or working in the project area to excessive noise levels? f). For a project within the vicinity of a private airstrip, would 0 [] the project expose people residing or working in the project area to excessive noise levels? Affected Environment: An Environmental Noise Survey was completed for the proposed project by Wilson, Ihrig & Associates, Inc. in December 2004 and is available for public review at Contra Costa County. The discussion below summarizes the findings of the study. Present Noise.Environment. The primary source of environmental noise in the project vicinity is Interstate-680 (I-680) vehicular traffic. A noise survey was conducted for the project site.At a height of 5 feet,the 24 hour average noise level(DNL)generally ranged from 60 to 65 DNL,which is consistent with expectations due to shielding of I-680 traffic noise introduced by both the sound wall built by Caltrans .' and by natural barrier effectscreated by the prevailing terrain features. At 15 feet high,however,the level of noise varied throughout the site, exceeding 70 DNL near the northwest corner of the project site. The higher levels of noise in this area are due primarily to the premature interruption of the Caltrans sound barrier at a distance of approximately 150 feet east of the east edge of Olympic Boulevard and of the inappropriate height of the barrier in an area where the terrain on the northern edge of Paulson Lane slopes downward. Future Predicted Noise. Since the noise environment is dominated by I-680 traffic, changes in traffic volume would directly affect the level of ambient noise at the site. According to the Annual Average Daily Traffic (AADT) data provided by Caltrans, an increment in volume of approximately 15% is expected between the years 2000 and 2010. As most of the noise exposure at the site is due to freeway traffic and not to Olympic Boulevard traffic, the expected future increases in traffic volume along Olympic Boulevard are not expected to noticeably change the overall noise environment within the site. According to the noise study (Wilson, Ihrig & Associates, Inc. 2004), the resulting increase in ambient noise level based on year 2010 traffic volumes would be less than one decibel (dB). These results apply to a future no-build condition. With the buildings in place, however, shielding effects to be introduced by the intervening structures would significantly reduce the level of exterior noise at the site, particularly for those homes located beyond the first row of homes closest to I-680, including existing homes on the south side of Las Trampas Creek. Discussion: a) Exposure of persons to or generation of noise levels in excess of standards established in the local general plan or noise ordinance, or applicable.standards of other agencies? P:\PaulsonLane\FinalInitialStudy.doc(3/14/2006) 43 LSA ASSOCIATES, INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION As described above,the primary source of environmental noise in the project vicinity is traffic on I- 680. Results of the noise survey show that the 24 hour average noise level (DNL) ranged from 60 to 65 DNL at.a height of 5 feet and from 60 to 70 at a height of 15 feet. These levels are just slightly higher than those considered"Normally Acceptable"under Contra Costa County standards and in a few areas are .within the range of "Conditionally Acceptable:" Implementation of Mitigation Measures NOISE-I would reduce potential impacts to a level below significance. b) Exposure of persons to or generation of excessive ground borne vibration or ground borne noise levels? Construction of the proposed project would.require excavationandearthwork activities. Although these activities could result in infrequent periods.of.high noise, this noise would not be sustained and would occur only during the temporary construction period. No pile driving or other construction activity that would generate very high noise levels or ground borne vibration would occur within the project site. Therefore, this impact is considered less-than-significant. c) A substantial permanent increase in ambient noise levels in the project vicinity above levels existing without the project? The long-term use of the project is residential. This land use would not generate high ambient noise levels. Conservative estimates for the increases in noise on the project site as a result of increase in traffic levels on I-680 due to increases in background traffic are one dB. No substantial long-term increase in ambient noise levels is expected as a result of project implementation. d) A substantial temporary or periodic increase in ambient noise levels in the project vicinity above - levels existing without the project? Construction activities associated with implementation of the proposed project could temporarily increase ambient noise levels. However, these noise levels would occur in association with minor excavation and earthwork activities, would be intermittent and short term, and would not be considered significant. e) For a project located within an airport land use plan or, where such a plan has not been adopted, within two miles of a public airport or public use airport, would the project expose people residing or working in the project area to excessive noise levels? . The County Airport Land Use Compatibility Plan includes noise contours from aircraft operations at Buchanan Field. The project site is not in a zone of increased noise from the airport, the 55 dB contour is located approximately 3,600 feet from the site, east of 1-680. The proposed project would not expose people residing or working in the project area to excessive noise levels. fi For a project within the vicinity of a private airstrip, would the project expose people residing or working in the project area to excessive noise levels? See Section XI.e,above. Mitigation Measures: NOISE-1: Final Noise Studv. Prior to recordation of Final Map, a final noise study shall be prepared and submitted to the County for review and approval. The final noise study shall specify appropriate construction details and building shell components to ensure the project meets all Contra Costa County noise level requirements. Building plans shall carry out all the recommendations of the approved report. P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 44 LSA ASSOCIATES, INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION Potentially Significant Potentially Unless Less Than Significant Mitigation Significant No Impact Incorporated Impact Impact XII. POPULATION AND HOUSING. Would the project: a) Induce substantial population growth in an area, either directly (for example, by proposing new homes and busi- nesses) or indirectly (for example, through extension of roads or other infrastructure)? b) Displace substantial numbers of .existing housing, necessitating the construction of replacement.housing else- where? c) Displace substantial numbers of people, necessitating the construction of replacement housing elsewhere? Affected Environment: The proposed project site is located within unincorporated Contra Costa County.The designated use of the project site is residential. Discussion: a) Induce substantial population growth in an area, either directly (for example, by proposing new homes and businesses) or indirectly (for example, through extension of roads or other infrastruc- ture)? The proposed project would develop the site with 22 residential units. Contra Costa County has an average household population of 2.72. The proposed project would increase the net population of the site by approximately 60 persons (22 x 2.72 =59.84). The additional 60 residents represent less than one tenth of one percent of Contra Costa County's existing population, which was 948,816 in 2000 according to the US Census. In addition, the project site is within the Urban Limit Line and the proposed project would not induce any population growth beyond that anticipated for the area. b) Displace substantial numbers of existing housing, necessitating the construction of replacement housing elsewhere? Although there are currently individuals residing in the several existing homes located on the property,the project applicant includes these individuals.Therefore,the proposed project would not displace substantial numbers of existing housing units or people and would not necessitate the construction of replacement housing elsewhere. c) Displace substantial numbers of people, necessitating the construction of replacement housing else- where? See Section XII.b, above. P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 45 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION Mitigation Measures: None required. Potentially Significant Potentially unless Less Than Significant Mitigation Significant No Impact Incorporated Impact Impact XIII. PUBLIC SERVICES. a) Would the project result in substantial adverse physical impacts associated with the provision of new or physically altered governmental facilities, need for new or physically altered governmental facilities, the construction .of which could cause significant environmental:impacts, in order to maintain acceptable service ratios, response times or other performance objectives for any of the public services: Fire protection? ❑ ❑ ❑ Police protection? ❑ ❑ ❑ Schools? ❑ ❑ ❑ • Parks? ❑ (J ❑ Other public facilities? ❑ ❑ ❑ Affected Environment: The proposed project would be located on a suburban infill site that is already served by public service systems. Discussion: a) Would the project result in substantial adverse physical impacts associated with the provision of new or physically altered governmental facilities, need for new or physically altered governmental facilities, the construction of which could cause significant environmental .impacts, in order to maintain acceptable service ratios, response times or other performance objectives for any of the public services: Fire protection,police protection, schools,parks, other public facilities? The proposed project would result in an increase of 22 residences on the project site. The level of public services required for the site would be similar or slightly greater than the level currently demanded. As part of the building permit review process, all departments and agencies responsible for providing services are consulted to determine their ability to provide services .to proposed development projects. Such services within the project area may include, but are not Iimited to fire and police protection, schools, maintenance of public facilities including roads, and other governmental. services as anticipated by the County's General Plan. Where required, the payment of in-lieu fees would further reduce potential impacts related to the provision of public services. Implementation of the proposed project would not result in substantial adverse physical impacts associated with the provision,need,or construction of government facilities. P:\PaulsonLane\FinallnitialStudy.doc(3/142006) 46 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 1111 PAULSON LANE SUED IVISION _ Mitigation Measures:.: None required. Potentially Significant Potentially Unless Less Than Significant Mitigation Significant No Impact Incorporated Impact Impact XIV. RECREATION. a) Would the project increase the use of existing neighborhood and regional parks or other recreational facilities such that substantial physical deterioration of the facility would occur or be accelerated? b) Does the project include recreational facilities or require the 0 construction or expansion of recreational facilities which might have an adverse physical effect on the environment? Affected Environment: The proposed project would include 22 single-family residences and increase the population on the site by approximately 60 persons. The proposed residences would include rear yards, and the project would include undeveloped areas along Las Trampas Creek. Discussion: a) Would the project increase the use of existing neighborhood and regional parks or other recrea- tional facilities such that substantial physical deterioration of the facility would occur or be accel- erated? The increased use of existing neighborhood and regional parks or other recreational facilities as a result of the proposed project would not be such that substantial physical deterioration of these facilities would occur or be accelerated. The payment of in-lieu fees (required for residential development and totaling approximately $44,000 for a 22-unit project) would further reduce potential impacts related to the provision of parks. b) Does the project include recreational facilities or require the construction or expansion of recrea- tional facilities which might have an adverse physical effect on the environment? The proposed project does not include construction of recreational facilities nor require the construction or expansion of recreational facilities. Mitigation Measures: No additional measures required. P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 47 LSA ASSOCIATES, INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 7006 PAULSON LANE SUBDIVISION Potentially Significant Potentially Unless Less Than Significant Mitigation Significant No Impact Incorporated Impact Impact XV, TRANSPORTATION/TRAFFIC. Would the project: a) Cause an increase in traffic which is substantial in relation to the existingtraffic load and capacity of the street system(i.e., result in a substantial increase in either the number of vehicle trips, the volume to capacity ratio on roads, or congestion at intersections)? b) Exceed, either individually or cumulatively, a level of service standard established by the county congestion management agency on designated roads or highways? c) Result in a change in air traffic patterns, including either an increase in traffic levels or a change in location that results in substantial safety risks? d) Substantially increase hazards due to a design feature (e.g., sharp curves or dangerous intersections)or incompatible uses (e.g.,farm equipment)? e) Result in inadequate emergency access? f) Result in inadequate parking capacity? g) Conflict with adopted polices, plans, or programs supporting alternative transportation(e.g.,bus turnouts,bicycle racks)? Affected Environment: A Transportation Study was.prepared for the proposed project by Omni-Means,Ltd. in October 2004 and is available for public review at Contra Costa County. The discussion below summarizes the findings of the study. Streets that provide access to and around the project site include Paulson Lane,Newell Avenue, Olympic Boulevard, Alpine Road, and South California Boulevard. Regional access to the project site is provided by Interstate 680 (I-680) and State Route 24. Detailed descriptions of these streets are included in the Transportation Study(Omni-Means,Ltd.2004). Traffic engineers and planners use the concept of Level of Service (LOS)to qualitatively describe traffic conditions. LOS ranges from LOS A, which describes free flow or ideal conditions with little or no delay; to LOS F, indicating problems where traffic flow exceeds design capacity. Based on discussions with Contra Costa County Transportation staff, six intersections were selected for evaluation. New AM and PM peak period (7:00-9:00 a.m. and 4:00-6:00 p.m.) turning movement counts were conducted at the six study intersections by Omni-Means, Ltd. From these peak period counts, the AM and PM peak hour volumes were derived using the accepted methodology for Contra Costa County and the City of Walnut Creek. P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 48 LSA ASSOCIATES, INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 200G... PAULSON LANE SUBDIVISION According .to .the Transportation.Study (Omni-Means, Ltd. 2004), all project study intersections are currently operating at acceptable levels (LOS D or better) during both the AM and PM peak hours. Vehicle congestion .(queuing) was observed at the Olympic Boulevard/I-680 northbound ramps and Olympic Boulevard/Alpine Road intersections during both the AM and PM peak hours. Due to recent upgrades,in signal timing and coordination at these intersectionsby the City of Walnut Creek, most of these vehicle.queues clear the intersections within one signal cycle phase. Future base (near-term) conditions represent existing traffic conditions plus anticipated traffic generated by approved and/or pending development over the next three to five years. These would include projects located in Contra Costa County and the City of Walnut Creek..Future base traffic conditions do not include traffic volumes generated by the •proposed project. With future base traffic added to existing traffic volumes, study intersection LOS would remain unchanged from existing conditions. The Olympic Boulevard/South California Boulevard intersection would experience the largest increase in vehicle trips from future base projects.and would continue to operate at LOS A.during the PM peak hour. Discussion: a) Cause an increase in traffic which is substantial in relation to the existing traffic load and capacity of the street system (i.e_result in a substantial increase in either the number of vehicle trips, the volume to capacity ratio on roads, or congestion at intersections)? - According to the Transportation Study (Omni-Means, Ltd. 2004), the proposed project would generate 268 daily vehicle trips with 21 AM peak hour trips and 28 PM peak hour trips. With proposed project traffic added to future base traffic volumes, study intersection LOS would remain unchanged from future base (no project)conditions. The Olympic Boulevard/I-680 southbound off- ramp/Paulson Lane intersection would experience the largest increase in vehicle trips from future base projects but would continue to operate at LOS A. b) Exceed, either individually or cumulatively, a level of service standard established by the county congestion management agency or designated roads or highways? Implementation of the proposed project would add approximately 268 daily vehicle trips with 21 AM peak hour trips and 28 PM peak hour trips to the local roadways. This increase would not exceed a level of service standard established by the Contra Costa County Congestion Management Agency. As described above, with proposed project traffic added to future base traffic volumes, study intersection LOS would remain unchanged from future base(no project) conditions. c) Result in a change in air traffic patterns, including either an increase in traffic levels or a change in location that results in substantial safety risks? The project site is located approximately eight (8) miles south of the Buchanan Airport. Implementation of the proposed project would not result in a change to air traffic patterns. d) Substantially increase hazards due to a design feature (e.g., sharp curves or dangerous intersec- tions) or incompatible uses (e.g.,farm equipment)? The project site would be accessed from Olympic Boulevard with home sites located off of Paulson Lane. The proposed residential units would be served by short courts and a.circular loop connecting to Paulson Lane. The Fire District has reviewed the proposed road configuration and is satisfied that it meets their standards. As outlined in the project description, a temporary pike turn around would be constructed during Phase I to allow emergency vehicles and other automobiles to exit the site until the circular loop road is completed. The temporary pike turn around would be removed P:\PaulsonLaneTinalInitialStudy.doc(3/14/2006) 49 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION upon completion of Phase II. The proposed project would not substantially increase hazards due to a design feature or incompatible uses. e) Result in inadequate emergency access? Emergency vehicles could access the site via the internal loop road. As described in Section XV.d. above, a temporary hammerhead would be constructed during Phase I to allow emergency vehicles and other automobiles to exit the site until the circular loop road is completed. The proposed project would have adequate emergency access. Result in inadequate parking capacity? The proposed. project would provide parking capacity consistent with the County Zoning Ordinance. In addition to the code requirement of 2 parking spaces per dwelling unit, the project would include 19 parking stalls to compensate for the narrow road widths that would inhibit street parking: five of these stalls would be placed at the entrance to the site, along Paulson Lane,and the remaining 14 would be distributed throughout the site and set back from the street. Each residence would include a two-car garage. g) Conflict with adopted polices, plans, or programs supporting alternative transportation (e.g., bus turnouts, bicycle racks)? The project does not conflict with adopted policies or programs supporting alternative transportation. • Mitigation Measures: None required. Potentially Significant Potentially finless Less Than Significant Mitigation Significant No Impact Incorporated Impact Impact XVI. UTILITIES AND SERVICE SYSTEMS. Would the proj ect: a) Exceed wastewater treatment requirements of the applicable. ❑ �] Regional Water Quality Control Board? b) Require or result in the construction of new water or waste- �] water treatment facilities or expansion of existing facilities, the construction of which could cause significant environ-. mental effects? c) Require or result in the construction of new storm water drainage facilities or expansion of existing facilities, the construction of which could cause significant environ- mental effects? d) Have sufficient water supplies available to serve the project [] from existing entitlements and resources, or are new or expanded entitlements needed? P:\PaulsonLane\FinallnitialStudy.doc(3/14/2006) 50 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUB131VISION Potentially Significant Potentially Unless Less 'Than Significant Mitigation Signifiicant No Impact. Incorporated Impact Impact e) Result in a determination by the wastewater treatment pro- 0 vider which serves or may serve the project that it has ade-. quate capacity to,serve the project's.projected demand in addition to the provider's existing commitments? . f) Be served by a landfill with sufficient permitted capacity to �] accommodate the project's solid waste disposal needs? g) Comply with federal, State, and local statutes and regula- tions related to solid waste? Affected Environment: The proposed project would be located on a suburban infill site that is already served by utilities and public service systems. Proposed uses on the site would include 22 residences. The level of public services required for the site would be similar to or slightly greater than the level currently demanded. Construction of new facilities related to provision of utilities would not be required as a result of the proposed project. Discussion: a) Exceed wastewater treatment requirements of the applicable Regional Water Quality Control Board? The implementation of the proposed project would not lead to an exceedance of wastewater treatment requirements of the applicable Regional Water Quality Control Board. b) Require or result in the construction of new water or wastewater treatment facilities or expansion of existing facilities, the construction of which could cause significant environmental effects? See XVI.a, above. c) Require or result in the constructionof new storm water drainage facilities or expansion of existing facilities, the construction of which could cause significant environmental effects? As described in Section VIII. Hydrology and Water Quality,the proposed project would include the construction of nine roadside bio-retention swales and five front-yard infiltration .planters to mitigate increased levels of stormwater runoff. Runoff from the roof and paved areas of 16 lots, as well as street runoff, will be conveyed to one of the nine grassy swales situated along the sides of the street.Runoff from the roof and paved areas of 2 lots will be conveyed to a grassy swale located inside the private drainage easement and will have access through a 15' Contra Costa County Flood Control District (CCCFCD) access easement, serving the drop structure. Swales remove pollutants primarily by filtering runoff slowly through an active laver of soil. Routine maintenance is needed to insure that flow is unobstructed, erosion is prevented and that soils are held together by plant roots and are biologically active. Because the remaining four lots are situated lower than the streetside swales, runoff from the roofs and paved areas of these four lots will be conveyed individually to five infiltration planters. Planter boxes capture runoff from downspouts or sheet flow from plazas and paved areas. The runoff P:\PaulsonLane\FlnallnitialStudv.doc(3/14/2006) 51 LSA ASSOCIATES, INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION briefly floods the surface of the box and then percolates through an active soils layer to drain rock below. A Storm Water Control Plan (SWCP) and Best Management Practices (BMPs) for the project has been prepared by the project civil engineer and reviewed and approved by the County Public Works Department as part of the Grading and Improvement Plans. `County inspection during site preparation and construction would confirm the implementation and on-going maintenance of the SWCP and BMPs and other pertinent County requirements related to water quality standards and waste discharge requirements. Implementation of Mitigation Measures HYDRO-1 through HYDRO-3 would ensure regulatory compliance and .reduce potential impacts to less than significant levels.No other mitigation measures are required. d) Have sufficient water supplies available, to serve the project from existing entitlements and resources, or are new or expanded entitlements needed? The proposed project would.be located on a suburban infill site that is already served by public service systems. The proposed project would include 22 .new residences on the project site. The level of public services required for the.site would be similar to.or slightly greater than the level currently demanded. As part of the building permit review.process, all departments and agencies responsible for providing services would be consulted to determine their ability to provide services to proposed development projects. e) Result.in a determination by the wastewater treatment provider which serves or may serve the pro- ject tht it has adequate capacity to serve the project's projected demand in addition to the pro- vider's existing commitments? See XVI.d, above. j7 Be served by a landfill with sufficient permitted capacity to accommodate the project's solid waste disposal needs? See XVI.d, above. g) Comply with federal, State, and local statutes and regulations related to solid waste? Recycling receptacles would be provided within the project site, in accordance with all statutes and regulations related to solid waste. Mitigation Measures: None required. r P:\PaulsonLane\Finallnitial5tudy.doc(3/14/2006) 52 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION �y Potentially Significant Potentially Unless Less Than Significant Mitigation Significant No Impact. Incorporated Impact Impact XVII.MANDATORY FINDINGS OF SIGNIFICANCE. a) Does the project have the potential to degrade the quality of [� the environment,substantially reduce the habitat of a fish or wildlife species, cause a fish or wildlife population to drop below self-sustaining levels, threaten to eliminate a plant or animal community, reduce the number or restrict the range of a rare or endangered plant or animal, or eliminate impor- tant examples of the major periods of California history or prehistory? b) Does the project have impacts that are individually limited, but cumulatively considerable? ("Cumulatively consider- able"means that the incremental effects of a project are con- siderable when viewed in connection with the effects of past projects, the effects of other current projects, and the effects of probable future projects.) d) Does the project have environmental effects which will [] cause substantial adverse effects on human beings, either directly or indirectly? a) Does the project have the potential to degrade the quality of the environment, substantially reduce the habitat of a fish or wildlife species, cause a fish or wildlife population to drop below self-sus- taining levels, threaten to eliminate a plant or animal community, reduce the number or restrict the range of a rare or endangered plant or animal, or eliminate important examples of the major per- iods of California history or prehistory?. As described in Section IV, the proposed project could adversely affect special status plants and animals. However, implementation of Mitigation Measures 13I0-1 through BIO-11 would ensure that impacts to these species are reduced to less-than-significant levels. As described in Section V., Cultural Resources, there are no identified cultural resources within the site, and it is unlikely that resources would be uncovered during the construction period. Implementation of the proposed project would not: 1)degrade the quality of the environment;2)substantially reduce the habitat of a fish or wildlife species; 3) cause a fish or wildlife population to drop below self-sustaining levels; 4)threaten to eliminate a plant or animal community; 5)reduce the number or restrict the range of a rare or endangered plant or animal, or 6) eliminate important examples of the major periods of California history or prehistory. b) Does the project have impacts that are individually limited, but cumulatively considerable? ("Cumulatively considerable" means that the incremental effects of a project are considerable when viewed in connection with the effects of past projects, the effects of other current projects, and the effects of probable future projects.) The impacts of the proposed project are individually limited and not cumulatively considerable. The proposed project would result in the development of 22 residential units in suburban Contra Costa County. All environmental impacts that could occur as a result of the proposed project would P:\PaulsonLane\FinalInitialStudy.doc(3/142006) 53 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION be reduced to a less-than-significant level through implementation of the mitigation measures recommended in this Initial Study. c) Does the project have environmental effects which will cause substantial adverse effects on human beings, either directly or indirectly? The proposed project would result in no environmental effects that would cause substantial direct or indirect adverse effects on human beings. REPORT PREPARERS LSA Associates,Inc. 157 Park Place Point Richmond,CA 94801 Laura Lafler, Principal Shanna Guiler, Senior Planner Kristin Granback,Assistant Planner Other Preparers Tom Packard,Principal,Tom Packard &Associates(Visual Assessment) John Oborne,Senior Planner,Contra Costa County P:\PauisonLane\FinallnitialStudy.doc(3/14/2006) 54 LSA ASSOCIATES. INC. CEQA INITIAL STUDY/MITIGATED NEGATIVE DECLARATION MARCH 2006 PAULSON LANE SUBDIVISION BIBLIOGRAPHY ADR Environmental Group,Inc.2004.Phase I Environmental Site Assessment. September 23. Aliquot Associates,2005.Storm Water Control Plan for Paulson Lane Subdivision 8939,Contra Costa County,CA. Archeo-Tec Consulting Archaeologists. 2004.Phase I.Cultural Resources Evaluation.June 17. California Department of Transportation, California Scenic Highway Program --http://www.dot.ca.goy hq/LandArch/sceni c/schwy l.html Camp& Camp Associates,2005. Tree Mitigation and Existing Tree Plan.May 23. City of Walnut Creek.2004.Letter to the Contra Costa County Zoning Administrator Re:Pre-Application Review Submittal#PR 040028 Paulson Lane.August 25. Contra Costa, County of.2005. Contra Costa County 2005 General Plan. Contra Costa County Clean Water Program, 2004. Contra Costa Creeks Inventory and Watershed Characterization Report: http://www.cccleanwater.org/12dfs/Creeks Inventory.pdf Earthtec Ltd.,2004 Preliminary Geotechnical Study Paulson Lane Residential Subdivision.December 8. Joseph McNeil Consulting Arborist. 2004. Tree Survey&Report,Paulson Lane, Walnut Creek, California.December 10. LSA Associates,Inc. 2005.Air Quality Analysis Paulson Lane.December. Mosaic Associates LLC.2004. Biological Resources Report Paulson Lane Residential Development, Unincorporated Walnut Creek, Contra Costa County.October 20. Mosaic Associates LLC.2005. Botanical Survey Results,Paulson Lane, Walnut Creek,Contra Costa County.April 19. Omni Means, Ltd.2004. Transportation Study for the Proposed Paulson Lane Residential Project. October. Wilson,Ihrig &Associates, Inc.2004. Environmental Noise Survey Results and Preliminary Recommendations.December 10. P:\PaulsonLane\FinallnirialSmdy.doc(3/142006) 55 APPENDIX MITIGATION MONITORING AND REPORTING PROGRAM �^•c c .ErJIM 4Ac cd a Cd �wr� � •y^ .0 � O rC p �...�•+ � r'�'i, vii � p.<a 5 A Cd � .� �.;p,�.� u � u� � •� .. p c!-'• Y+ ro a .�.s as ob ado ° c ° o aci + ..c o t:m , z p US cj a� U � .o . U . y c a t O p v Z o tw vs .b qp o + H v v +• a < i o o U O O Q P b y 0 v �. .= v1. • . - c P CL s. v a "Cl 4 � �.•� � �+ may" "C�jt rz UP U U ~ P U +�+cn O w + U U ti CIS Q) to snbz yj t7G? 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"C •� U .O N r� L O Py„', 7 4. ro c s ^ N 'v^ w CL `° c o o c o 1 chi , I's, oLc adU U . E cw C� Ll G o. n LN .a - ca w0. .EE G..w;U R.� 'o T o ro .� t'i C C ^ O ^ o E2 O _ 8 n C g o F. rn � '3i O c0 = G .0 a•^ > ^ .� •^ O O U d4 !Av vim, O O co v c3 y O y G - ^ p0, a>i `" o ° a uu 'O q cc •y F -C L N ;K�sV td 'O O CQ G z cc Lt -0 cd i cC rd 7- c0 .N r .ii„ ,Z �" 'p C C:.'O C .� i7 'b c^ c O :,`y.1 1 q :% .fl CO v. to U N C:. �3y C:. in L+ 'O 1 v F- <_ Mi :! Exhibit 5 May 9, 2006 Staff Report to the County Planning Commission Agenda Item # Community Development Contra Costa County • COUNTY PLANNING COMMISSION TUESDAY, MAY 9, 2006 Paulson Lane Subdivision I. INTRODUCTION BNB VENTURES, LLC. (Applicant), J. VUICH & BNB VENTURES, LLC (Owners), County Files GP04-0009, RZ04-3153. SD04-8939 & DP04-3119: Applicant requests approval of a General Plan Amendment, Rezoning, Major Subdivision and a Final Development Plan as follows: A. General Plan Amendment #GP04-0009: Change the General Plan land use designation from Single Family Residential Medium-Density (SM) to Single-Family Residential High-Density(SH); and B. Rezoning #RZ04-3153: Rezone the project site.from R-6, Single Family Residential and R-10, Single Family Residential to P-1 Planned Unit District, with a variance to allow application of the P-1 district for a residential development involving less than 5 (five) acres; and C. Major Subdivision #SD04-8939: Subdivide the project site into 22 single-family residential lots in 2 phases; and D. Final Development Plan #DP04-3119: Develop 22 single-family residential lots in 2 phases. The project site is approximately 4.6 acres and.is bounded on the south by Las Trampas Creek and on the north by Interstate 680 in the Walnut Creek area. (Zoning: R-6, R-10) (Zoning Atlas Page: N-19) (Census Tract 3420.00) (APNs: 184-100-030,028,007,008,032). H. RECOMMENDATION A. Find that the Mitigated Negative Declaration was presented to the County Planning Commission, and the Commission reviewed and considered the information contained in the Mitigated Negative Declaration prior to making a decision on the proj ect; and B. Find the Mitigated Negative Declaration reflects the County's independent judgment and analysis and was prepared consistent with the California Environmental Quality Act (CEQA) and the State and County CEQA Guidelines and designated the Community Development Department as the custodian of the documents which constitute the record of the proceedings upon which the decision is based: and C. Find that on the basis of the whole record before it, the County has determined that there is no substantial evidence that the.project will have a significant effect on the environment after mitigations; and D. Adopt a motion to recommend that the Board of Supervisors approve the following: an amendment to the Land Use Element Map of the Contra Costa County General Plan (2005-2020) to re-designate a portion of the site from Single-Family Medium Density to Single-Family High Density; rezone the site from R-6, Single Family Residential and R-10, Single-Family Residential to P-1, Planned Unit Development, with a variance to allow application of the P-1 district for a residential development involving less than 5 (five) acres and, approve the Final Development Plan in 2 phases subject to the attached conditions of approval and mitigation measures. E. Approve the vesting tentative map in 2 phases, subject to the attached conditions and mitigation measures. The approval of the vesting tentative map is,subject to the Board's approval of the General Plan Amendment and Rezoning. F. Adopt the Mitigation Measures contained in the Mitigated Negative Declaration for this project. III. GENERAL INFORMATION A. General Plan: The project site has two general plan designations, Single-Family Medium (SM) and Open Space (OS). B. Zoning: The project site has two zoning designations, R-6, Single-Family Residential and R-10, Single-Family Residential. C. CEQA Status: A Mitigated Negative Declaration was posted on March 15, 2006 for a 30 day comment period that ended April 14, 2006 (State Clearing House #2006032084). Impacts to aesthetics, biology, hazardous materials, cultural resources, hydrology, noise, air quality and geology were identified as potentially significant unless mitigated. The applicant has agreed to mitigations that reduce the impacts to less than significant. During the public comment period three letters were received. The response to these letters is contained in section VII of this report. D. Regulatory Progams: 1. Flood Hazard Area: That portion of the site that runs along Las Trampas Creek is in Flood Zone A, with the remainder of the site located in Flood Zone C. SR- 2 2. 60 dBa Noise Control Zone: The present noise environment at the site is dominated by Interstate 680 vehicular traffic, which exceeds the 60dBa standard. IV. SITE/AREA DESCRIPTION' The subject site is made up of 5 contiguous parcels for a total area of 4.6 acres that is located east of the Olympic Boulevared in the Walnut Creek area (see the Paulson Lane Vicinity Map attached to this report). The site is occupied by several single-family residences, sheds and detached garages. This is a relatively level site occupying a terrace above the bend in Las Trampas Creek. Interstate 680 bounds the site to the north, while to the southwest and southeast of the site is Las Trampas Creek. Vegetation on the site consists of native oaks, willow and black walnut, as well as many imported non-native trees. V. PROPOSED PROJECT The proposed scope of the project includes the following: A. General Plan Amendment: The project site currently has two general plan designations, Single-Family Medium (SM) and Open Space (OS). The OS designation follows Las Trampas Creek along the eastern and southern boundaries of the site, while the SM designation is extended over the remainder of the site. There is a General Plan Amendment that is being processed concurrently with this application that changes the Single-Family Medium designation to Single-Family High (SH). The OS designation will remain in place. See Exhibit A attached to this report. B. Rezoning: The applicant is requesting approval of a rezoning application that would change the zoning of the site from R-6, Single-Family Residential and R-10, Single-Family Residential to P-1, Planned Unit District with a variance to allow application of the P-1 district for a residential development involving less than 5 (five) acres. See Exhibit B attached to this report. C. Development Plan Approval: An application for approval of a final development plan to construct 22 single-family residences in two phases. See Exhibit C attached to this report. D. Subdivision Map: The applicant is requesting approval of a vesting tentative map subdividing a 4.6 acre site into 22 single-family residential lots in two phases. See Exhibit C & D attached to this report. SR - 3 • VI. AGENCY COMMENTS Saranap Homeowers' Association: In a letter dated March 1, 2006, the Association indicated that there would be two basic impacts to the surrounding community; traffic and noise. Summary of comments: As far as the traffic is concerned, they felt that the additional traffic.generated by the project would be a minimal impact on the surrounding neighborhood based on their discussions. with the applicant and a County traffic engineer. In regard to noise, they felt that the. noise from the freeway may be increased to the neighbors living across Las Trampas Creek due to the removal of trees on the site. But this may be mitigated by retaining the larger trees along the Creek that separate those neighbors from the freeway, as well as planting more trees on the site as part of the project. This, they felt, should also be a condition of project approval. There are approximately 200 trees on the project site, of which approximately 98 trees are proposed for removal. As a condition of approval, the applicant shall replace the approximately 98 trees with 214 new trees. The trees along the Creek shall be retained. City of Walnut Creek: In letters to the County dated August 25, 2004 and January 20, 2005, the City had the following comments: Summary of comments: The six parking places that are shown on the plans may not be adequate for the project. Response: The plans have been revised to include a total of 19 parking stalls across the site in order to compensate for the narrow road widths. This is in addition to 2-off street parking places being provided for each proposed residence. Summary of comments: The development is located close to downtown Walnut Creek and other facilities, and sidewalks should be included in order to encourage walking. Response: There is a sidewalk planned from the project site down to Olympic Boulevard to encourage walking to the downtown Walnut Creek area. Summary of comments: The development should be clustered residential units so that it would preserve the site's natural features such as the creek and trees. SR - 4 Response: The project is designed to cluster the residential units up and off the creek corridor so that there is ample setback from the creek. Trees along Las Trampas Creek as well as a number of desirable trees immediately surrounding the proposed residences would be preserved. Summary of comments: The ownership of Paulson Lane should be clarified as well as the traffic impacts from the proposed development. Response: Paulson Lane is a Public road, not private. In addition, according to traffic study done for this project there would be an additional 21AM peak hour trips and 28PM peak hour.trips to the local roadways. This increase would not exceed a level of service .standard established by the Contra Costa County Congestion Management Agency. Summary of comments: The City of Walnut Creek's Creek Restoration and Trail Master Plan shows a connection along Las Trampas Creek on a portion of the project site. The project should dedicate the required trail right-of-way. Response:Although the future trail connection is shown in the City's Trail Master Plan, which was adopted in 1993, it is not identified in any County planning document, including our General Plan (2005-2020). Additionally, the trail is not identified in the Contra Costa Countywide Bicycle and Pedestrian Plan, which was adopted in December of 2003 by the Contra.Costa Transportation Authority, following an extensive collaborative planning effort involving the nineteen cities . in the County, the County, the East Bay Regional Park District, the Contra Costa Transportation Authority, and bicycle and pedestrian advocacy groups. The County is obligated by law to rely on policies in its own General Plan, or other plans to which it is a party to, as the basis upon which it requires dedications of easements for trail corridors.It is for.this reason that the County is unable to find a policy basis to help establish the nexus between the requested extension of the trail, and the approval of the Paulson Lane project. In addition, the topography of the site and location of surrounding roadways present challenges for using this site as an appropriate location for a trail. Summary of comments: As proposed, the appearance of the homes from the roads will be dominated by two-car garage doors, and the home design should be changed to emphasize the front of the homes not the garage doors. Response: The project is conditioned to re-submit elevations that that do not emphasize the garage door. Department of Fish and Game: In a letter dated January 3, 2005 the Department of Fish and Game stated that any activity that will divert or obstruct the natural flow, or, change the bed, channel or bank of the river or stream may require a stream bed alteration agreement. SR - 5 In general, the project is not proposing construction or grading near. the creek. However, the project does include construction of a storm drain outfall to Las Trampas Creek. Construction of the storm drain outfall to Las Trampas Creek may require the removal of riparian vegetation, and has the potential to result in the deposition of fill in waters of the United States and State. If the outfall to Las Trampas Creek is situated below the creek top of bank, a Streambed Alteration Agreement from California Department of Fish and Game would be required. If the outfall requires the placement of fill within waters of the US,permits from the Corps and RWQCB would also be required. . Contra Costa County Fire Protection District: In a memo dated September 13, 2005 the Fire Protection District submitted comments on the application (attached). In a follow-up memo they indicated that they have no new requirements of the revised tentative map. East Bay Municipal Utilities District: In a memo dated December 28, 2004, EBMUD indicated that water service is available subject their requirements. VII. CEQA REVIEW During the public comment period for the mitigated negative declaration there were three letters received by the County. Below is a response to these letters. Letter from Parkmead Community Association, dated April 12, 2006; Summary of comments: The project should preserve large mature trees within the project site as well as the trees along the top.of the creek bank. And, those trees that are removed should be replaced following the landscape design presented to the Parkmead`and Saranap neighborhood associations. The project should be required to closely monitor preservation of trees and tree roots during the construction period. Staff Response: Approximately 199 trees are located on the project site, of which approximately 98 trees are proposed for removal. According to the Tree Survey and Report by the project arborist, Joseph McNeil, most of the trees proposed for removal are not "intrinsically desirable" based upon species type, health, structure and size. The trees to be removed are located at the interior of the site and primarily within the footprint of proposed new development. Trees along Las Trampas Creek would be retained. The trees that are to be removed would be replaced as generally shown on the Tree Mitigation and Existing Tree Plan, by Camp and Camp Associates, 5/12/05, which was presented to the Parkmead and Saranap associations. Also, the project is required to establish tree protection zones which are fenced off with cyclone fencing before site disturbance to ensure that construction impacts to the trees are mitigated. The project is also required to work closely with the project arborist. Summary of comment: The project should preserve.the existing high quality night sky along the creek channel and prohibit second floor decks overlooking the backyards and into windows of existing homes across the creek. SR - 6 Staff Response: All outdoor lighting associated with the project shall be designed and located to minimize ambient light levels for any given application. The project shall be conditioned so that area lighting shall be directed downward with no splay of lighting directed offsite. The project is conditioned to provide deed restrictions to restrict second story decks in the back-yards of those homes tharback up to the creek. Summary of comment: Closely monitor the drainage for the project to ensure the creek channel and riparian habitat is protected. Also there should be no retaining walls along the creek channel. Staff response: The drainage of the site shall.be subject to the review and approval of the Public Works Department and a Streambed Alteration Agreement shall be acquired prior to construction of the storm drain outfall into Las Trampas Creek. There are no retaining walls proposed along the creek. Summary of comment: The project should preserve.and improve the riparian habitat along the Las Trampas Creek Channel including removal of arundo from the creek channel where appropriate. Staff response: The.project is conditioned to clean up debris from the creek within the project boundaries. The arunda, however, was not required to be removed because not all of it is located on the project site and the County General Plan contains policies that encourage creeks to be retained in the natural state whenever possible. Letter from Friends of the Creeks, dated April 14, 2006 Most of the comments contained in the letter from Friends of the Creeks are the same ones found in, and responded to, in the above letter from Parkmead Community Association. The one additional comment from the Friends of the Creeks is as follows: Summary of comment: The project should include a trail as described in the Creeks Restoration and Trails Mater Plan and the City of Walnut Creek General Plan(2006). Staff response: As previously noted, the City of Walnut Creek's Creek Restoration and Trail Plan shows a trail connection along Las Trampas Creek to Olympic Boulevard. Although the future trail connection is shown in the City's Trail Master Plan, which was adopted in 1993, it is not identified in any County planning document, including the County's General Plan (2005-2020). Additionally, the trail is not identified in the Contra Costa Countywide Bicycle and Pedestrian Plan, which was adopted in December of 2003 by the Contra Costa Transportation Authority, following an extensive collaborative planning effort involving the nineteen cities in the County, the County, the East Bay Regional Park District, the Contra Costa Transportation Authority, and bicycle and pedestrian advocacy groups. The County is obligated by law to rely on policies in its own General Plan, or other plans to which it is a party to, as the basis upon which it requires dedications of easements for trail corridors. It is for this reason that the County is unable to find SR - 7 a policy basis to help establish the nexus between the requested extension of the trail, and the approval of the Paulson Lane project. Letter from Palma Dell. 1760 Magnolia Way, Walnut Creek, dated April 11, 2006. Summary of comments: The proposed development is a high density housing project that will negatively impact our neighborhood in the following ways: Increased noise from high density housing (e.g. neighbors, vehicles,barking dogs,music). Increase traffic noise from nearby freeway due to the proposed tree removal. The view from our backyard would be of numerous other neighbors instead of the foliage and trees we currently enjoy. Staff response: The proposed development would result in more houses in the area but the density, Single Family High Density, is consistent with Single Family High Density designations that are located to the west and southeast of the site. The increase in traffic noise from the freeway because of tree removal is mitigated by the fact the large mature trees that are along the creek are being retained, and some of the large trees in the interior of the site are being preserved as well. In addition, according to the noise study for this project, the shielding effects introduced by the proposed homes would substantially reduce ®. exterior noise levels for the existing homes on the south side of Las Trampas Creek. The retention of trees along the creek would also screen any views of new homes. VIII. STAFF ANALYSIS / DISCUSSION General Plan Amendment: A General Plan Amendment for the project site. is concurrently.under review. The site currently has two General Plan designations: Single-Family Medium(SM) and Open Space (OS). The SM designation allows between 3.0 and 4.9 single-family units per net acre. Sites can range up to 14, 519 square feet. With an average of 2.5 persons per household, population densities would normally range from about 7.5 to about 12.5 persons per acre. Under the current land use designation of SM the site would yield between 14 and 17 single-family units. The OS designation includes publicly owned, open space lands which are not designated as "Public and Semi-Public, "Watershed", or "Parks and Recreation". Lands designated "Open Space" include, without limitation, wetlands and tidelands and other areas of significant ecological resources, or geologic hazards. SR - 8 The general plan amendment under consideration proposes to change the SM portion of the site to Single-Family High (SH), which allows for a greater density of between 5.0 to 7.2 single- family units per net acre. With approval of the SH designation the maximum allowed density on this site would be 25 single-family units. The applicant is requesting 22 single-family units. The Open Space designation, which follows the Las Trampas Creek through a portion of the site would remain in place. The reason the SH designation was considered, is that, given that the Paulson Lane area was significantly altered by the I-680/24 Interchange Project, a privately initiated proposal to redevelop the area for additional housing would be appropriate because it could provide a public benefit of more housing in close proximity to downtown Walnut Creek. Rezoning: The subject property is surrounded on the east, south and west by several zoning districts including R-6 (Single-Family Residential, 6,000 square feet minimum lot size), R-10 (Single- Family Residential, 10,000 square feet minimum lot size), and P-1 (Planned Unit District). To the north of the site is 1-680 and downtown Walnut Creek. The.4.6 acre project site is made up 5 contiguous parcels. Four of them are zoned R-6 single- family residential, and the remaining parcel is zoned R-10 single-family residential. The applicant is proposing to rezone the project site from R-6 and R-10 to Planned Unit District /`11 (P-1), with a variance to allow application of the P-1 district for a residential development r involving less than 5 (five) acres. Approval of the proposed zoning will be contingent upon approval of the proposed General Plan amendment. This proposed zoning constitutes a reasonable balance in the way in which a project can be fitted to a site and the existing neighborhood. The 4.6 acre area to be rezoned to Planned Unit Development (P-1) corresponds with the area to be placed within the Single-Family High (SH) and Open Space (OS) General Plan designations. Upon approval of the General Plan amendment the proposed P-1 will be consistent with these land use designations. Phasing of the Subdivision&Final Development Plan The applications for the subdivision (SD048939) and final development plan (DP043119) are proposed in two phases (see exhibit C attached to this report). This was done to establish a consistency of development across the five parcels that make up the project site. Phase One and Phase Two are owned by two separate owners, but the applications were filed jointly as one project. Phase Two cannot record nor construct first, without the prior construction of Phase One. SR- 9 Currently, it is planned to record the final map of the first phase and begin construction. Phase • Two will record, thereafter, and begin construction at a time decided by the owners of Phase Two, within the statutory extension periods of the tentative map. Residential Designs: There are three house designs ( see exhibit F attached to this report), with floor plans ranging from 2375 square feet to 2485 square feet in size. Each of the three house plans has two different street elevations. These options are dispersed among the lots. With several earth-tone color schemes, no two street elevations are the same. The Craftsman styled homes are clad in a muted blend of plaster, wood and stone with the slate-style shake roof. The standard for development is R-6, with exceptions as noted in the development plan. Tree Removal: Trees on the site consist of native oak as well as many imported non-native trees. There are approximately 200 trees on the project site, of which approximately 98 are proposed to be removed. The applicant proposes to replace the approximately 98 trees with 214 new trees. None of the trees along the creek are proposed for removal. However, at the rear of lot 8, next to the creek, are two larger trees, one is a dominant oak tree (#362), and the other tree is a redwood tree (#363). The two trees crowd into each other and the arborist recommends that one of them be .removed so that there is enough room for the surviving tree to flourish. The arborist will determine which tree is desirable to keep and may recommend removal the other one. In _ addition, there is. one pine tree (#2501) located in the front of the adjacent parcel (184-100-027) which will be removed to make room for the planned sidewalk from the project site down to Olympic Blvd. The County has permission from the owner of this parcel to remove the pine tree. According to the Tree Survey and Report (Joseph McNeil, 2004), most of the trees proposed for removal are not "intrinsically desirable" based on species type, health, structure, and size. The trees to be removed are located at the interior of the site and primarily within the footprint of proposed new development. A number of desirable trees immediately surrounding the proposed new homes would be retained. Noise Issues: The current noise environment at the project site is dominated by I-680 vehicular traffic. To help mitigate the noise impact there is a..sound wall between the freeway and the project site and, according to a sound study that was prepared for this project, the noise levels generally range from 60 DNL at southern most portion of the site, up to 70 DNL nearest the freeway at the north. According to the General Plan, up to a level of 60 DNL is normally acceptable for a residential use and up to 70 is conditionally acceptable,which means new construction should be undertaken only after a detailed analysis of the noise impacts is made and the needed noise insulation features are designed into the project. SR - 10 In this regard, prior to filing the final map for the project, a final noise study shall be prepared that specifies construction details and building shell components to ensure the project meets all • Count noise level requirements. The building plans for the residences shall c out all the Y q g P carry approved recommendations in the report. There is also a concern among the neighbors, across the creek to the south, that when the trees are removed on the project site the noise from the freeway will be increased on their property. This is mitigated by the fact that the trees along the creek, which provide a buffer between the freeway and them, will not be removed and some of the larger trees within the site will be retained as well. In addition, the proposed homes would provide a barrier between the freeway and the neighbors across the creek to the south, which according to the sound study done for this project, would reduce the noise level on the neighbor's property. Creek Issues: Las Trampas Creek runs along the eastern and southern border of the project site. The project was designed to have minimal, if any, impact on the creek. The proposed lots are arranged so that the creek runs along the rear yards of 12 of the lots. There are no trees along the creek proposed for removal, except as noted above, and there is not grading within the creek structure setback area. However, there is a proposed storm drain outfall behind lots 10 and 11, which the California Department of Fish and Game will have jurisdiction over. Currently there is some debris in and along the creek as it runs through a portion of the project site. This debris includes such things as an old wheel barrel, a car battery and broken branches from a recent storm. As part of a general creek clean-up the development is conditioned to remove this debris from the creek area that is located within the project area. No plants or wildlife shall be removed as part of this clean-up. Frontage Improvements &Landscaping: The applicant proposes to construct a sidewalk from the project site down to Olympic Blvd. The project "Tree Mitigation and Existing Tree Plan" (attached as exhibit D) by Camp and Camp Associates, landscape architects, establishes trees, of mixed variety and species along the new sidewalk. This plan is generally acceptable to the County, except that these trees shall be planted outside of the public right-of-way, and in some cases may be relocated. The road will be extended and paved along the project frontage and eventually providing two entrance streets to the project. Gradin Project grading will consist of street and lot grading with minimum cutting or filling of earth. Nominal conform grading with the existing ground is setback from the creek bank. To minimize filling, excess earth will be hauled offsite. SR - 11 IX. PUBLIC WORKS CONSIDERATIONTS • Traffic and Circulation The subject property fronts on Paulson Lane, a public road, with a 28-foot pavement width. The existing right of way is irregular, but adequate, and no additional dedications will be required. Frontage improvements will need to be installed to bring the road up to current County standards. In Phase 1, the applicant shall be required to construct curb, four-foot six-inch sidewalk, necessary longitudinal and transverse drainage, and street lighting along the entire south side of Paulson Lane. The applicant shall construct these frontage improvements to conform to existing curb and gutter and shall extend from the intersection of Olympic Boulevard and Paulson Lane to the easternmost limit of the public portion of Paulson Lane. A standard driveway depression shall be constructed at the existing driveway access serving the Vuich and intervening properties. When Phase 2 develops, a street-type connection with minimum 20-foot radii curb returns shall be constructed at the proposed intersection of "A" Street and Paulson Lane, as shown on the revised vesting tentative map received by the Community Development Department on January 26, 2006. The applicant sha11 construct an on-site roadway system that meets current County private road standards, with a minimum traveled way width of 20 feet within a 21-foot wide access easement and an additional 5-foot wide public. utility easement (PUE) on each side,- as shown on the revised vesting tentative map received by the Community Development Department on January 26, 2006. Reciprocal access rights between the two subdivision phases shall be dedicated. The applicant shall construct a turnaround at the northeast end of proposed "A" Street (near Lot 14), as shown on the revised vesting tentative map and subject to the review and approval of Public Works and the Fire District. The applicant shall construct a temporary turnaround at the terminus of"A" Street in Phase 1 (near Lot 18)to serve Phase 1, as shown on the revised vesting tentative map and subject to the review and approval of Public Works and the Fire District. This temporary turnaround may be removed after construction of Phase 2 road improvements is complete. Drainage Division 914 of the County Ordinance Code requires all storm water entering and/or originating on this property to be collected and conveyed without diversion and within an adequate storm drainage system, to an adequate natural watercourse having a definable bed and banks, or to an existing adequate public storm drainage system which conveys the storm waters to an adequate natural watercourse. The applicant proposes to construct a collection of on-site swales and storm drains to ultimately convey and discharge storm water runoff to the creek. All storm drain systems constructed as part of Phase 1 shall be adequately sized to accommodate storm water runoff from both Phase 1 and Phase 2 to the ultimate point of discharge. Any surface or subsurface storm drain facility within the subdivision conveying runoff from private streets or more than one parcel shall be • installed within a minimum 10-foot wide private storm drainage easement. The applicant shall SR - 12 construct the outfall structure to meet current County standards, obtain any necessary permits from the appropriate regulatory agencies (e.g. Department of Fish and Game, Army Corp of Engineers, and Flood Control District, and establish all necessary drainage easements for access and maintenance, as required in these conditions of approval. Las Trampas Creek traverses the western and southern boundary of the subject property. The applicant shall relinquish "development rights" over that portion of the site that is within the structure setback area of Las Trampas Creek. The creek structure setback area shall be determined by using the criteria outlined in Chapter 914-14, "Rights of Way and Setbacks," of the County Ordinance Code. "Development rights" shall be conveyed to the County by grant deed. Stormwater Management This project is required to be in full compliance with the County's Stormwater Management and Discharge Control Ordinance, the Stormwater "C.3" Guidebook (available at www.cccleanwater.org) and the requirements of the Regional Water Quality Control Board. A Stormwater Control Plan date stamped received October 24, 2005 by the Public Works Department was reviewed and determined to be preliminarily complete. Although the Stormwater Control Plan has been determined to be preliminarily complete, it remains subject to future revision based on any changes or design modifications that may be made during the preparation of improvement plans. GACurrent Planning\curr-plan\Staff Reports\SD048939.stfrpt.doc.doc .1 SR - 13 • Exhibit 6 Pertinent Correspondence EAST BAY REGIONAL PARK DISTRICT i BOARD OF DIRECTORS Carol Severin President July 18, 2006 . Ward 3 John Sutter John Obome Vice-President Contra Costa County Ward 2 Community Development Department Ayn Wieskamp 651 Pine Street,2°d Floor NW Treasurer Martinez, CA 94553-0095 Ward 5 Ted Radke RE: County File No. GP04-0009 Secretary Ward 7 Paulson Lane Subdivision Number 8939 Beverly Lane Ward 6 Dear Mr. Oborne: Doug Siden Ward 4 East Bay Regional Park District is writing to express its support for the inclusion of a non- motorized trail connection across the above-referenced subdivision. A trail connection at this Nancy Skinner Ward 1 location would assist in linking together the major central Contra Costa County trails, the Iron Horse Regional Trail and Lafayette Moraga Regional Trail, Pat O'Brien General Manager Currently,pedestrian access along Newell Avenue is severely constrained by the lack of sidewalks and narrow traffic lanes. Providing a non-motorized alternative along Las Trampas Creek could improve pedestrian access to the downtown area,reducing traffic congestion and the need for additional parking. It could also reduce the need for pedestrians and bicyclists to _ brave the very crowded Olympic Blvd/I680 undercrossing. Study after study has shown that the inclusion of trails in development projects reduces vehicular use and improves property values. Trails, even local connector trails, are almost never acquired and developed all at once. Developments such as this provide the opportunity to acquire the"building blocks"necessary to create ao idor that can be developed into a workable local system of connectors to the Park Di ict's Regional Trails.The Park District urges the County to provide for a workable trail c ct"on through this development project. / yo for y consideration. burs 1 , o se Tr s Development Program Manager 5 -544-2602 cc: Andrew Smith, City of Walnut Creek 2950 Peralta Oaks Court P.O.Box 5381 Oakland.CA 94605-0381 �' _. 510 635-0135 F., 510 569-4319 Too 510 633-0460 www.ebparks.org C I T Y O F !. .`� i, WALNUT ' CREEK May 3, 2006 Contra Costa County Planning Commission 651 Pine Street 4th Floor,North Wing Martinez, CA 94553-0095 Re, Paulson Lane Subdivision Dear Commissioners, The proposed Paulson Lane Subdivision is located within the City of Walnut Creek's sphere of influence and immediately adjacent to the city limit line between the city and unincorporated county. During the preliminary review process County planning staff referred the application to ' our department for review and we discussed with County staff our concerns regarding the placement and design of the proposed homes, and the trail corridor along the adjacent creek that P g P P g J is identified in the Walnut Creek Creek Restoration and Trails..Master Plan. The Creek Restoration and Trails Master Plan identifies a "future extension of [the] main creek trail" as passing through the subject property on the north side of the creek at the top of the creek bank, and this trail alignment is meant to fill a gap between the existing Lafayette Moraga Regional Trail and the proposed Las Trampas Creek Trail connecting with the Iron Horse Trail in downtown Walnut Creek. Requiring right-of-way dedication and/or trail development as a condition of the entitlement process is called for by the Creek Restoration and Trails Master Plan which states that "...as the development or redevelopment process continues in Walnut Creek, project segments can be installed as part of required street improvements or developer- dedicated land or easements in accordance with the Creeks Restoration and Trails Master Plan." In the staff report prepared by the County Planning Department, staff makes the claim that because the proposed trail alignment is not included in the County General Plan or the Contra Costa Countywide Bicycle and Pedestrian Plan that no nexus exists between the requested extension of the trail and the approval of the Paulson Lane Subdivision. The Contra Costa Countywide Bicycle and Pedestrian Plan, however, is not intended to be a compilation of all bicycle and pedestrian facilities in the County. In fact there is no plan for a pedestrian network, only design guidelines, What the Plan does show is bicycle connections in this area along Olympic Boulevard and a future connection along Newell Avenue. On page 2 of the Countywide Plan it states, "This countywide network, however, will need to be supported by an expanded system of local connections to facilitate bicycle and pedestrian movement." Post Office Box 8039, 1666 North Main Street,Walnut Creek,CA 94596 tel 925.943.5899 wwwci.walnut-creek.ca.us printed on recycled paper The trail planned for in the Walnut Creek Creek Restoration and Trails Master Plan was not • intended as a regional transportation facility. It was envisioned as a creek access plan not as a regional.bike--route. ..Page.55 -of-volume one.-of-the--states, -"Cyclists-in a hurry--to reach their various destinations will probably use the straight Iron Horse Trail and the connection streets rather that the more circuitous and scenic Creekside Trail. Safer for recreational bicyclists than the city streets, the Creekside Trail should become the preferred route for the families, children and visitors seeking a leisurely route through the downtown area, rather that for serious through cyclists." This is not the description of a regional route but rather a local route. Therefore it was not included in the Countywide Plan. While the County is not legally obligated to implement the plans and policies of the City of Walnut Creek, it is in both the County's and the City's best interested to work cooperatively in such matters of regional importance, particularly when considering that this portion of the proposed trail will primarily benefit residents of the unincorporated Saranap neighborhood and that this trail alignment will tie directly into the recently constructed and County funded extension of the Lafayette Moraga Regional Trail along the adjacent portion of Olympic Boulevard. While the lack of its inclusion into any County planning documents may be a reasonable policy basis to not require the extension of the trail for an application that would only involve a subdivision, it is certainly not the case for this application that also requires a General Plan amendment that will result in significantly higher residential densities. Unfortunately, the City of Walnut Creek was not notified of the preparation of the Initial Study and Negative Declaration, or even of the submittal of the final plans. The City was not made aware of this oversight until after the expiration of the comment period for the Initial Study, and consequently we are now left with no recourse but to appeal directly to the County Planning Commission. Therefore, the City of Walnut Creek hereby respectfully requests that the Contra Costa County Planning Commission only approve this project if an,extension of the proposed trail and/or right-of-way dedication is included as a condition of approval. Sincerely,. Andrew M. Smith Senior Planner (925) 943-5899 x213 asmithZ.walnut-creek.orp, cc: City of Walnut Creek: Mayor Kathy Hicks Councilmembers Mike Parness, City Manager Valerie Barone, Community Development Director Sandra Meyer, Planning Manager Me C I T Y O F WALNUT CREEK August 25, 2004 Ms. Aruna Bhat Zoning Administrator Contra Costa'County Community Development Department 651 Pine Street 4th Floor,North Wing Martinez, CA 94553 Re:Pre-Application Review Submittal #PR 040028 Paulson Lane Dear Ms. Bhat: The City of Walnut Creek appreciates the opportunity to review and provide comment on the above Pre-Application Review. The Community Development Department and Engineering Division have reviewed the materials provided by your office and have the following comments on this project which is located within the City's Sphere of Influence: 1. The proposal seeks an increase in residential density from the existing Single Family Medium Density designation of 3 to 4.9 units per acre(which is consistent with the City of Walnut Creek's land use designation for this area) to Single Family.High Density 5 to 7.2 units per acre(equivalent to the City's Single Family High Density designation allowing 6 to 9 units per acre). The site constraints discussed below(including numerous trees and the creek) call for a development that clusters;:res dential.uriits;and preserves the site's natural features to the extent feasible. To that end, a higher density may be justified. A townhouse development with homes clustered in areas with fewer trees would allow preservation of more trees and would create opportunities for larger green spaces.between the homes and creek. This design would be more consistent with preserving the site's natural features and would be preferable to the layout of the single-family homes and the site plan that has been proposed. 2. The proposed site plan shows that Paulson Lane is private but it is not included in any of the three parcels that it serves. The ownership of Paulson Lane needs to be clarified. Because the development includes all of the Post Office Box 8039, 1666 North Main Street,Walnut Creek,CA 94596 tel 925.943.5899 www.ci.walnut-creek.ca.us pnmed on recycled paper properties that use Paulson Lane for access, the developer may wish:to . consider relocating Paulson Lane if that would improve the layout of the homes. In addition, the proposal should examine the capacity of Paulson Lane to handle additional traffic and the street improvement that would be required. 3. The City of.Walnut Creek's Creek Restoration and Trail Master Plan shows a connection along Las Trampas Creek from the portion of the creek on the east side of the freeway to Olympic Boulevard (see attachment). The project should dedicate a pedestrianibike easement and build an 8 foot wide decomposed granite trail from Olympic to the freeway. The trail should also be integrated into the residential development to provide pedestrian access. 4. The site plan shows a minimum setback from the creek based on a height of top of bank above the creek of less than 20 feet. However,the County's ordinance also allows for extension of the setback line where significant riparian vegetation exists beyond the minimum setback. We recommend additional study of the creek and surrounding vegetation and extension of the setback line if appropriate. 5. The proposal should address the responsibility for the long-term maintenance of the creek. 6. There are approximately 150 trees identified on the site, including several oaks.and other Highly Protected Trees. According to neighbors these trees provide visual and auditory screening of the freeway. Although some trees along the creek are retained, the proposal shows most of.the trees on the site removed. The redesign of the site plan to cluster residential development may allow the retention of additional trees and would create the opportunity for more open space within the development. 7. The plan submitted shows development on the.three parcels as separate from each other. In order to improve pedestrian and auto circulation and to create a more cohesive neighborhood, a roadway should connect these parcels. The proposal should also explain the proposed phasing of the project and address the future maintenance of the roads in this development.. 8. Visitor parking should be provided throughout the development. Currently it is shown only on the Tillman/Hork parcel. . 9. A sidewalk/pathway should be provided along Paulson Lane from Olympic Boulevard to the development. 10. As proposed, the appearance of the homes from the access roads will be dominated by two-car garages. The site plan should be amended to minimize the dominance of the garage doors and instead emphasize the front of the homes and the main front doors to the homes. 11. Given the crisis in providing affordable housing in the Bay Area,this project should provide at least ten percent of the for sale units (4 units)affordable:to moderate income households. Again,thank you for considering our comments in your review of this application. The City is very interested in staying informed on this project as it proceeds through the County.'s review process. Please keep me informed on the project's progress and all major changes. Cordially, i e Stern,AICP Senior Planner (925) 943-5834 x. 213 stern@ci.walnut-creek.ca.us Enc. c. Valerie Barone, Community Development Director Rachel Lenci, City Engineer John Hall, Transportation Planning Manager Brad Blake, Blake Hall Ventures Pam Romo,Friends of the Creek N •1t^".. C �JtnM OOLL may' �\\,�^ � �' •O.i �A. xr —. PURD � *�' ��� WIEIClER IR1IL 000 WM CP1 MAIL n WCONDWR TRW •••••/EfdIWRr 1RRIL 0"LC710M5 �I��• y� •��.luslon eRewAr woresEo..aww MMUL RAM PROPOSED CREEK.TIUR ✓ AND CONNECTIONS ``p f CREEKS RESTORATION d TRAILS MASTER PLAN CITY CW MLWI CREEK CALWO"u TOWAYM MOM"IML Figure 31 in separating users. A pedestrian-only trail, though smaller, would require a similar construction right-of-way as the combined trail. Unfortunately, bicycle use is likely to occur on the narrower trail regardless of signage to the contrary, making the pedestrian-only trail potentially more hazardous to the various users than the wider trail. In areas where it is anticipated that people may congregate or stop, larger spaces are proposed out of the flow. In somewhat constricted areas or areas with obstructions, the trail will split in order to separate the users for limited distances. Cyclists in a hurry to reach their various destinations will probably use the straight regional Iron Horse Trail and the connecting streets rather than the more circuitous and scenic Creekside Trail. Safer for recreational bicyclists than the city streets, the Creekside Trail should become the preferred route for families, children, and visitors seeking a leisurely route through the downtown area, rather than for the serious through-cyclists. CREEKS RESTORATION AND TRAILS MASTER PLAN-Volume 1:Summary MASTER PIAN 55 �D BNB VENTURES, LLC May 9, 2006 Mr.Donald Snyder Planning Commission Chair 651 Pine Street, 4'"Floor,North Wing Martinez,CA 94553 Re: Creek side trail abutting Paulson Lane,Walnut Creek properties Dear Don: I am writing to you in response to the issue raised by the City of Walnut Creek regarding the requested creek trail easement along the rear of.the BNB, Vuich and Westerlund properties located along Paulson Lane. We have worked with Parkmead and Saranap neighborhood groups for the past three years regarding this project and have worked especially close with the immediate neighbors of the project who have homes adjacent to the creek in order to fully understand their concerns about views,sound mitigation and security along the creek. We told the neighbors early in the process we would follow their lead in regard to the trail. The trail connection through along the creek would be impractical for several reasons: (1)the creek bank within this area is very steep and.unstable, .along the adjacent property the slope exceeds 90%, with a 40 foot vertical drop; (2) the proposed trail connections underneath Olympic Boulevard and I-680 would be extremely difficult and expensive to construct due to inadequate vertical clearance underneath.the two structures; and (3) the property owners within the immediate neighborhood have stated their staunch opposition to us regarding a proposed creek side trail, due to lack of . visibility to the area and associated security concerns and potential maintenance issues. As a result of the site constraints and maintenance and security issues regarding a creek side trail,we would propose any future trail be routed west along the new Paulson Lane sidewalk to ultimately connect with the Cal Trans right of way between the northern edge of the BNB properties and the Cal Trans sound wall and then continue under the freeway. It appears this existing Cal Trans' landscape easement area is more than adequate to accommodate a trail and can be easily accessed via the new sidewalks to be constructed along Paulson lane that will provide a direct connection to Olympic Boulevard. It is our desire to work this issue out in a way that is mutually acceptable to everyone involved,if you have any questions please contact me at your earliest convince. Sincerely, BNB Ventures,LL Bradley N.Blake Manager cc: Bob Walsh Andy Byde John Oborne 411 Harty Avenue,Suite 200 Danville,CA 94526 Phone: (921)314-1700 Fax: (935)314-2704 1710 Newell Avenue Walnut Creek, CA 94595-1432 r'' May 9, 2006 rs. f;`v CONTRA COSTA COUNTY COMMUNITY DEVELOPMENT DEPARTMENT 651 Pine Street Martinez, CA 94553-1229 ATTN: JOHN OBORNE, COUNTY PLANNING COMMISSION Re: Las Tramoas Creek Public Trail Dear Mr. Oborne: Our home is located at 1710 Newell Avenue in Walnut Creek on property that runs along and across Las Trampas Creek. We are opposed to any public pathway built along the residential portion of Las Trampas Creek for the following reasons: Privacy . A public path along the back yards of adjacent properties will turn areas of private sanctuary into areas of display to the public. Security A path open to the public will be open not only to those with good intent,but also to those with criminal intent who will relish the opportunity for new access to private property. In addition, it will increase access for those who currently reside in a homeless encampment under the bridge on South California Boulevard. Safety and Liability The attractive nuisance of the creek itself will draw people into the creek. The creek and its banks.are hazardous, and we do not want to see anyone injured or killed as a result of accidentally or intentionally having strayed from the path into the creek. We do not want to assume the liability for this,nor should our neighbors or the county. Violation of Community Although we have not conducted a comprehensive poll,our sense of the community is that there is a lack of support for a creekside path. To the contrary,I have heard general opposition. If a path is forced on the community despite opposition,it will not be welcome and will be considered a violation of the will of the community. Economically Unfeasible We believe that the money spent building,maintaining,securing, and mitigating the effects of a pathway would.be better spent elsewhere in the community. Public funds could be spent on the infrastructure,and private funds could be better spent on the public schools in our neighborhood. We also suggest that any cost estimates prepared for the pathway should include the cost of a protracted legal battle over the project itself. Opposition to a public pathway along the residential portions of Las Trampas Creek has been expressed repeatedly within the Parkmead community. There has been a considerable amount of discussion already,and the general consensus is that the pathway is neither welcome nor feasible. Despite this, individuals who do not represent the interests or the concerns of homeowners in the county who would be directly impacted by the consequences of this pathway continue to resurrect the idea. We hope that it is dispatched with finality. Sincerely, Troi and Steve Nelson cc Contra Costa County Supervisors John M. Gioia Gayle B. Uilkema Mary N. Piepho Mark DeSauinier Federal D. Glover Bob Walsh,BNB Ventures Parkmead Cornpz4pity Association 1701 Lilac Dr Walnut Creek., CA 94595 Founded in 1947 April 12, 2006 John Obome Contra Costa County Community Development Department _ 651 Pine.Street, 2" Floor NW Martinez, CA 94553-0095 — RE: Notice of Public Review and Intent to Adopt a Proposed Mitigated Negative Declaration: County File#S GP04-0009, RZ04-3153,SD04-8939, DP043119 Proposed Paulson Lane Subdivision Number 8939 Dear Mr. Oborne: Thank you for your proactive approach to keeping the Parkmead Community Association (PCA) informed of the status of the proposed.Paulson Lane development in unincorporated Walnut Creek. Since this project is next to several of our neighbors, it is of great interest to our association as well as to the impacted neighbors. We have worked closely with the Saranap Homeowners Association in reviewing the proposal and in meeting with the developer, BNB Ventures. The Parkmead Community Association requests that the following mitigation measures be formalized in writing as a project permit condition with close monitoring to ensure compliance. In addition, where appropriate,we request that the mitigation measures be codified into deed restrictions and/or CC&R restrictions as appropriate. ithin the project site and replace removed trees, shrubs, MUMesith trees apprbpriate for riparian habitat following the landscape design presented to the Parkmead and Saranap neighborhood associatio ; 2. Preserve trees growing along the top of the bank(including trees _,_ , r and plant additional trees appropriate for riparian habitat along the top of the bank o ensure privacy for neighbors directly across the creek from the project. 3. Closely monitor preservation of trees and tree roots during`the construction process. 4. Establish deed restrictions that prohibit low into windows of existing homes across the creek from the project. 5. Preserve the existing high quality night sky along the creek channel. Mitigate night light pollution by installing low to the ground landscape lighting and low level shielded street lighting. `Require that all future backyard lighting installation be aimed toward homes and away from the creek channel. 6- 'Iture that the creek channel and riparian h 't any and all retaining walls associated with this project along the creek channel. 7. Install a property boundary marker on Lot#8 at the top of the bank. 8. Preserve and,improve .hie ripa n habitat along the Las Trampas Creek Channel, _ including rom the creek channel where appropriate. 1 BACKGROUND INFORMATION • .Parkmead neighbors initiated contact with BNB Ventures in early August 2004 after first hearing about a proposal to build a subdivision on Paulson Lane in Walnut Creek, CA. The project has evolved since that time to a proposal for a subdivision with 22 two story homes, 16 of these homes to be built during the first phase of the project. On August 5, 2004, Brad Blake, BNB Ventures, replied via e-mail to confirm that BNB Ventures, LCC, had three Paulson Lane properties under option to buy. "My partner for this project, Bob Walsh, will be contacting you .... We would like to develop 16 single family detached homes on the parcels at 141, 160, and 161 Paulson on about 3.1 acres. .... Each house would be two stones and 2000 to 2600 square feet with fairly large yards and set back more than 100 feet from the creek. We will preserve most of the trees.... We anticipate sale prices of about$750, 000 to 850,000 dollars...We hope we can meet, show you plans, and gain your support." (8/5/04 e-mail—Attachment A). The Parkmead community invited BNB Ventures partners,:Brad Blake and Bob Walsh, to present and discuss their plans on September 10, 2004, at the home of Kurt and Inok King, 1780 Magnolia Way. Seventeen neighbors attended the meeting. In addition, nine who were unable to attend sent comments and questions. Concern was expressed regarding noise and-air pollution from the 680 freeway into the Parkmead neighborhood resulting from excessive tree removal, night light pollution from street lights and second story windows, impact on privacy for existing. property owners directly across the creek channel from the:project, and preservation of the creek channel and riparian habitat. Minutes from the September 10, 2004, Parkmead community meeting titled "Neighborhood Meeting: Paulson Lane Proposar are also attached. (Attachment The Parkmead neighborhood is located in close proximity to a major highway (680)which generates large amounts of noise. The Paulson Lane neighborhood situated between the Parkmead neighborhood and the 1 680 contains a number of large trees with a wide, thick canopy. (A satellite photo is attached to this letter to illustrate-Attachment C). Such vegetation, if it is high enough, wide enough, and dense enough that it cannot be seen through, can significantly decrease highway noise by as much as 50%. ("Highway Traffic Noise Analysis and Abatement Policy and Guidance" by U.S, Department of Transportation, Federal Highway Administration: Office of Environment and Planning. Noise and Air Quality Branch. Washington, D.C., June 1995) Thus, removing a significant portion of this canopy cover will expose the Parkmead neighborhood to great) increased levels of noise, and is of concern.to the neighborhood. The US Departmen of Transportation Fe era ig w is ra ion states at new roadside plantings create merely a psychological relief, and are, in fact, ineffective as a noise abatement measure. BNB Ventures has proposed saving most trees with large canopies, and mitigating trees removed with new plantings.The CEQA report indicates on page 10 that either oak tree#362 or redwood tree#363 Wil be removed. During a site tour with the developer on March 11, 2006, neighbors were assured that all.the large trees along the top of the creek bank would be preserved. (redw While t mun i e p an new trees in the proposed development, Pe Imall Parkmead residents are also concerned that excessive remova o arge mature trees will increase air pollution coming into the neighborhood from the 680 freeway. In addition, we are concerned that large trees to be preserved ftajfttMN�' Trees may be damaged many ways during construction including inadvertent 2 removal, cutting of roots, soil compaction, smothering of roots, and exposure to the elements. The Parkmead Community Association requests that BNB Ventures and the builder, Andy Byde • of Braddock& Logan Services, Inc d sta med by �recognizeWd�iey's�uchaslhe damage during construction as proulgat International Society of Arboriculture or other recognized organization accepted by the County Community Development Department. Tree roots should be protected duringconstruction with all usual means including circumferential fencing if appropriate. (`Avoiding Tree Damage During Construction", (pamphlet) International Society of Arboriculture,PO Box 3129, Champaign,.III. 61826-3129, USA 2001) Neighbors expressed concern about potential night sky light pollution from the new Paulson Lane Subdivision in September, 2004, and, again, on several occasions throughout the planning process. The Parkmead neighborhood requests that every effort be made to preserve the current high quality night sky views along the creek channel. In response, BNB Ventures promised neighbors they will minimize night sky light pollution by installing low to the ground landscape lighting and deed restrictions an o subdivision CC&R that WIN homes and may not be aimed toward the Las Trampas Creek Channel, causing glare into homes and backyards directly across the creek channel from the project. The CEQA report states on page 10 that there are few public open views of the project site from Magnolia Way, Magnolia Court, and Newell Avenue acro a creek from the proposed site. However,10. from the proposed project site along Magnolia Way, Magnolia Court, and.Newell:Avenue.are one story ranch style homes with large windows and back yards directly facing the site with clear. views of the proposed project. On December 4, 2004, Bob Walsh (BNB•Ventures), Pam Romo (Friends of the Creeks), Francine Podenski(Parkmead resident), and Tom.Sheridan (Parkmead resident)toured Magnolia Way and Newell Avenue properties located directly.across the:creek from the proposed project. Designs for some of the proposed Paulson Lane homes backing out • onto the creek channel were adjusted to ensure privacy for property owners. For example: IWE El' ectly across from Paulson Lane The CEQA report acknowledges that there will be a potentially significant impact on habitat and biological resources unless mitigation is incorporated. Neighbors regularly observe many animals hunting, nesting, and living along the creek channel: blue herons, ducks, hawks, geese, hummingbirds, a young bald eagle, bats, deer, squirrel, coyote, various rodents, snakes, amphibians, turtles, various butterflies, and honey bees have been observed. The large number of trees on the site provides significant habitat and nesting sites for a wide varie of bird pr ; BNB Ventures should be strong y encouraged, possibly required, to coordinate efforts with Friends of the Creeks to resew son Lane Subdivision project along the Las Trampas Creek Channel while the project is being built. Neighbors along the creek have expressed concem about liability resulting from children and adults entering areas of the creek channel. Parkmead neighbors (Steve and Troi Nelson) directly.across from Lot#8 have requested that the boundary of their property on Paulson Lane (Lot#8) be clearly and permanently marked where it extends across the creek. Blake Hunt Ventures, particularly Mr. Robert Walsh, has been most accommodating in not only meeting with the concemed residents, but listening and responding to our concerns and suggestions. We trust that BNB Ventures will continue to fulfill their obligations as they endeavor to create a development that will respect and blend with its environment and the Parkmead .) community. 3 Please keep the Parkmead Community Association informed of the next steps in the process. Direct information via U.S. mail to Pete Johnson at the.above address. Francine Podenski, Chair of the PCA Development Committee, should also be included in all communication regarding • Paulson Lane at her home address: 1750 Magnolia Way, Walnut Creek, CA 94595. Pete's phone number is 925-933-4490 and Francine's is 925-933-6344 if you have any questions about this letter or need to contact the Parkmead Community Association by phone. Thank you again for keeping us informed. Sincerely, Joseph Patch Curtis, President Parkmead Community Association CC: Cris Tarozzi, PCA Vice President Pete Johnson, PCA Community Liaison Francine Podenski, PCA Development Committee Chair John Ruzek, President, Saranap Homeowners'Association Brad Blake, BNB Ventures Bob Walsh, BNB Ventures C 4 Exhibit 7 Notification List 184100007 184100008 184100027 BNB VENTURES LLC BLAKE HUNT VENTURES PHILLIPS TRACY L 411 HARTZ AVE#200 411 HARTZ AVE 4200 6603 HORSEMANS CANYON DR DANVILLE CA DANVILLE CA WALNUT CREEK CA 94526 94526 94595 184100028 184100030 184100032 J ARMINTROUT DIABLO VLY TRUCKINGCO BNB VENTURES LLC 1661 INCA DR 121 PAULSON LN 411 HARTZ AVE#200 LARAMIE WY WALNUT CREEK CA DANVILLE CA 82072 94595 94526 184191014 184191015 184191016 CUNNINGHAM JOHN W&C H TRE COCHRANE E H EST OF KING KURT&INOK TRE 20 MAGNOLIA CT 1790 MAGNOLIA WAY 1780 MAGNOLIA WAY WALNUT CREEK CA WALNUT CREEK CA WALNUT CREEK CA 94595 94595 94595 184191017 184191018 184191019 MUZZINI ANNE E DELL DAVID&PALMA TRE ROEMBACH DANIEL D 1770 MAGNOLIA WAY 1760 MAGNOLIA WAY 1750 MAGNOLIA WAY WALNUT CREEK CA WALNUT CREEK CA WALNUT CREEK CA 94595 94595 94595 184191020 184191021 184191022 TORANTO TERRY J KLEISATH WILLIAM&MARILYN TRE MARINCHAK JOHN M&MARJORIE E 1740 MAGNOLIA WAY 1730 MAGNOLIA WAY 1720 MAGNOLIA WAY WALNUT CREEK CA WALNUT CREEK CA WALNUT CREEK CA 94595 94595 94595 184191024 184191027 184192001 PENDERGRAFT FLINT A&MARY G TULLUS DAVID SHELTON JR VAFA SAIED 30 MAGNOLIA CT 31 MAGNOLIA CT 1721 MAGNOLIA WAY WALNUT CREEK CA WALNUT CREEK CA WALNUT CREEK CA 94595 94595 94595 184193006 184193007 184193008 HAYES JEFFREY S&JODI S WALLACE VIRGINIA J TANG HENRY 1801 MAGNOLIA WAY 1761 MAGNOLIA WAY 1751 MAGNOLIA WAY WALNUT CREEK CA WALNUT CREEK CA WALNUT CREEK CA 94595 94595 94595 184193009 184193010 184193011 MACDOUGALL KRISTIN A GUSTAFSON MARY B LANG LYNDA G TRE 1741 MAGNOLIA WAY 1731 MAGNOLIA WAY 120 CAMELIA LN WALNUT CREEK CA WALNUT CREEK CA WALNUT CREEK CA 94595 94595 94595 184202002 184202003 184202004 POTTER LOIS D TRE DESLIPPE LEE J&JANICE L SNYDER JAMES&LIESELOTTE TRE 1732 NEWELL AVE 1764 NEWELL AVE 1780 NEWELL AVE WALNUT CREEK CA WALNUT CREEK CA WALNUT CREEK CA 94595 94595 94595 184202005 184214005 184214006 iARDENAL JOHN&SUSAN J ALM SUSAN D NELSON STEVEN R&TROI A 1710 MAGNOLIA WAY PO BOX 2594 1710 NEWELL AVE WALNUT CREEK CA WALNUT CREEK CA WALNUT CREEK CA 94595 94595 94595 184214007 184214008 184214012 HUNT MORGAN R&MELINDA H WILT MICHAEL&GLORIA TRE BERGE THOR CALVIN 1712 NEWELL AVE 1706 NEWELL AVE 1690 NEWELL AVE WALNUT CREEK CA WALNUT CREEK CA WALNUT CREEK CA 94595 94595 94595 184214013 184214014 HORLEY EDWARD ROEMMICH DUANE C 1670 NEWELL AVE 1680 NEWELL AVE WALNUT CREEK CA WALNUT CREEK CA 94595 94595 r John Vuich Pacific Union Brad Blake 121 Paulson Lane Attn: Bob Worthington BNB VENTURES, LLC 'nut Creek, CA 94595 2085 N. Broadway# 100 411 Hartz Ave., Ste 200 Walnut Creek, CA 94596 Danville, CA 94526 Public Works/Engineering, Ser,. i Public Works/Traffic Control Public Works/Flood Control EBMUD CCC Fire District Building Inspection David Rh hnstrom 375- 11 Street MS 701 Oakland, CA 94607-4240 Department of Fish And Game Central Contra Costa County Francine Podenski Region 3 San.District 1750 Magnolia Way P O.Box 47 5019 Imhoff Place Walnut Creek, CA 94595 Y ountville, CA 94599 Martinez, CA 94553 Friends of the Creek Parkmead Community Association Atta: Leslie Hunt Michael Frederick Attn: Pete Johnson 236 Warwick Drive 71 Willow Ave 1701 Lilac Drive Walnut Creek, CA 94598 Walnut Creek, CA 94595 Walnut Creek, CA 94595 401ilYl 'of Walnut Creek Attn: Andrew Smith P.O.Box 8039 Walnut Creek, CA 94596 APN SITUS_NBR SITUS_STRI SITUS_STRI SITUS_STRI SITUS-APT SITUS_FRA(SITUS_CITY 184100007 141 PAULSON LANE WALNUT CF 184100008 161 PAULSON LANE WALNUT CF 184100027 111 PAULSON LANE WALNUT CF 184100028 131 PAULSON LANE WALNUT CF 184100030 121 PAULSON LANE WALNUT CF 184100032 160 PAULSON LANE WALNUT CF 184191014 20 MAGNOLIA COURT WALNUT CF 184191015 1790 MAGNOLIA WAY WALNUT CF 184191016 1780 MAGNOLIA WAY WALNUT CF 184191017 1770 MAGNOLIA WAY WALNUT CF 184191018 1760 MAGNOLIA WAY WALNUT CF 184191019 1750 MAGNOLIA WAY WALNUT CF 184191020 1740 MAGNOLIA WAY WALNUT CF 184191021 1730 MAGNOLIA WAY WALNUT CF 184191022 1720 MAGNOLIA WAY WALNUT CF 184191024 30 MAGNOLIA COURT WALNUT CF 184191027, 31 MAGNOLIA COURT WALNUT CF 184192001 1721.MAGNOLIA WAY WALNUT CF 184193006 1801 MAGNOLIA WAY WALNUT CF 184193007 1761 MAGNOLIA WAY WALNUT CF 184193008 1751 MAGNOLIA WAY WALNUT CF 184193009 1741 MAGNOLIA WAY WALNUT CF 184193010 1731 MAGNOLIA WAY WALNUT CF 184193011 120 CAMELIA LANE WALNUT CF 184202002 1732 NEWELL AVENUE WALNUT CF • 184202003 1764 NEWELL AVENUE WALNUT CF 184202004 1780 NEWELL AVENUE WALNUT CF 184202005 1710 MAGNOLIA WAY WALNUT CF 184214005 1702 NEWELL AVENUE WALNUT CF 184214006 1710 NEWELL AVENUE WALNUT CF 184214007 1712 NEWELL AVENUE WALNUT CF 184214008 1706 NEWELL AVENUE WALNUT CF . 184214012 1690 NEWELL AVENUE WALNUT CF 184214013 1670 NEWELL AVENUE WALNUT CF 184214014 1680 NEWELL AVENUE WALNUT CF Exhibit 8 Maps and Plans mfir✓ ���'i,���'-+i.::.z;::�� ...a�. _ "a .�::Kj `.�j��'T•-r�I''� „. � yY. ..,-'y:::s.rn •:a?,.y'.`'NJ N _ _ _ -`�y. :'is,�..-•.'x rjy� .+,�.'�'A ,:„r:�?,.,.��F'S�_��e<�ri:yq...�,,. 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Name: �° � � Phone: Address: � .� d-�, ��'�.�� City: (Address and phone number are optional; please note that this card will become a public record kept on file with the Clerk of the Board in association with this meeting) I am speaking for myself or organization: F IEEA177�?S /-")F CHECK ONE: �I 1 wish to speak on Agenda Item # 0 Date: My comments will be:J.9 General ❑ For ❑ Against ❑ 1 wish to speak on the subject of: ❑ 1 do not wish to speak but would like to leave these comments, for the Board to consi,::,-: Please see reverse for instructions and important information REQUEST TO SPEAK FORM (THREE (3) MINUTE LIMIT) y Complete this form and plac it the box near the speakers' rostrum before addressing the Board. Name: &4 Phone: 50 Q Y"y 6 ,, 5 3-ky— Address: Y1,4D City: (Address and phone number are optio al; please note that this card will become a public record kept on file with the Clerk of the Board in as ociation with this meeting) I am speaking for myself or organization: CHECK ONE: ❑ 1 wish to speak on Agenda Item # Date: My comments will be: ❑ General ❑ For ❑ Against I wish to speak on the subject of: ❑ I do not wish to speak but would like to leave these comments for the Board to consi,y.- Please see reverse for instructions and important information REQUEST TO SPEAK FORM (THREE (3) MINUTE LIMIT) J Complete this form and place it in the box near the speakers' rostrum before addressing the Board. 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Name: S���� Uva Phone: Address: �� I D ���e �Je City: wa I f`1 0 (Address and phone number are optional; please note that this card will become a public record kept on file with the Clerk of the Board in association with this meeting) I am speaking for myself or organization: CHECK ONE: I wish to speak on Agenda Item # Date: Z My comments will be: �K General ❑ For ❑ Against ❑ I wish to speak on the subject of: ❑ 1 do not wish to speak but would like to leave these comments for the Board to consi,:`:,T: Please see reverse for instructions and important information REQUEST TO SPEAK FORM n (THREE (3) MINUTE LIMIT) ✓y Complete this form and place it in the box near the speakers' rostrum before addressing the Board. Name: Phone: � � ��� Address: Sy City: (Address and phone number' are 'OP tional; please note that this card will become a public record kept on file with the Clerk of the Board in association with this meeting) I am speaking for myself or organization: CHECK ONE: — > ❑ I wish to speak on Agenda Item # Date: �C My ments will be: General ❑ For jVgainst ❑ I wish to speak on the subject of: 4. ❑ I do not wish to speak but would like to leave these comments for the Board to consi,;:,-: Please see reverse for instructions and important information REQUEST TO SPEAK FORM n THREE 3 MINUTE LIMIT J Complete this form and place it in the box near the speakers' rostrum before addressing the Board. Name: �' fe Address: -15P Lit City: (Address and phone numbel are optional;please note that this card will become a public record kept on file with the Clerk of the Board in asso iation with this meeting) A I am speaking for myself or organization: CHECK ONE: A I wish to speak on Agenda Item # Date: My comments will be: ❑ General ❑ For ❑ Against ❑ I wish to speak on the subject of: �.5 ❑ I do not wish to speak but would like to leave these comments for the Board to consi,;—, Please see reverse for instructions and important information REQUEST TO SPEAK FORM (THREE (3) MINUTE LIMIT) -D Complete this form and place it in the box near the speakers' rostrum before addressing the Board. Name: al),Y14e �7 51\1 ( Phone: Address: City: (Address and phone number are optional; please note that this card will become a public record kept on file with the Clerk of the Board in association with this meeting) 1 I am speaking for myself or organization: CHE K ONE: I wish to speak on Agenda Item # Date: .My comments will be: ❑ General ❑ For ❑ Against 0/1,1"Wish to speak on the subject of: � Z 01-) I-RNA� ❑ I do not wish to speak but would like to leave these comments for the Board to consi,y:,. Please see reverse for instructions and important information y Contra TO: BOARD OF SUPERVISORS Costa FROM: Dennis M. Barry, AICP, Community Development Director :. County co T� DATE: September 26, 2006 SUBJECT: Home Ownership Partnership Enterprise (HOPE) Program V<0 10 15 SPECIFIC REQUEST(S) OR RECOMMENDATION(S) & BACKGROUND AND JUSTIFICATION RECOMMENDATIONS: DIRECT Community Development Department staff to take those steps necessary to take the Home Ownership Partnership Enterprise(HOPE)program from its current form and develop it to a point where it can be included in the County's Inclusionary Housing Ordinance as an approved alternative method of meeting the requirements of the Inclusionary Housing Ordinance. FISCAL IMPACT: Not fully known at this time. If the HOPE Program were implemented as proposed, there would be decreased revenues to the County General Fund as well as individual departments such as Community Development, Building Inspection, and Public Works. In addition, there would be an increase in staff costs associated with implementing the Program. There is no proposed revenue to off-set either the decreased revenue or increased costs. BACKGROUND/REASONS FOR RECOMMENDATIONS: Planning Commissioner Murray developed the HOPE program as a multi-faceted proposal to fund affordable housing opportunities in Contra Costa County. The County Planning Commission considered the proposal at its April 25, June 13, and July 11, 2006 meetings. The stated purpose of the HOPE program is to provide new development incentives and home purchase assistance to low and moderate income families, and development of new rental units for very-low income families. The HOPE program includes the following components: CONTINUED ON ATTACHMENT: ® YES ❑ NO SIGNATURE . 1 RECOMMENDATION OF COUNTY ADMINISTRATOR RECOMMENDATION OF BOARD COMMITT E APPROVE OTHER ___... SIGNATURE(S): y ACTION OF BOARD O P -OTHER VOTE OF SUPERVISORS 1 HEREBY CERTIFY THAT THIS IS A TRUE AND Y_ UNANIMOUS (ABSENT CORRECT COPY OF AN ACTION TAKEN AND AYES: NOES: ENTERED ON THE MINUTES OF THE BOARD ABSENT: ABSTAIN: OF SUPERVISO ON THE DATE SH/OWN. Contact: Kara Douglas (925/335-7223) ATTESTED (o cc: Community Development Department-CDBG J CULLEN, CLERK OF THE County Administrator BOARD OF SUPERVISORS AND County Counsel OUNTY ADMINISTRATOR Auditor-Controller gms-h\pinr\KD.HOPE.prog9-26-06.BO BY , DEPUTY Horne Ownership Partnership Enterprise (HOPE) Program September 26, 2006 Page 2 Q$QKGROUND/EJEASONS FOR RECOMMENDATIONS — Continued &:W e o rs would pay a fee of $3,000 for each unit in a new development. This is called a "unit purchase". This is applicable to any residential development of one unit or more. 2. Tax increment financing districts(TIF): New TIFs would be established for each property sold or rented to an income eligible household. Future TIF revenues would be used to support bond financing, which would bring revenue into the program more quickly than waiting for the TIF to be paid over time. 3. Fee suspension: Planning, building, and special district fees would be suspended until an affordable unit is no longer part of the program. Fees would be paid by the homeownerwhen they sell the home, or by the owner of an apartment building when the term of affordability expires. 4. Density bonuses: A density bonus would be provided to developers of affordable housing. 5. Realtor contributions: Realtors would be asked to contribute one percent of their sales commission. The CPC recommends that the Board of Supervisors direct staff to develop the HOPE proposal so that it may be an alternative compliance option in the Inclusionary Housing Ordinance(IHO). The IHO is being considered in a public hearing on this September 26, 2006 Board of Supervisors agenda. The IHO is a proposal to add Chapter 522-4 to the County Ordinance Code to require new residential developments to include a minimum percentage of dwelling units that are affordable to very-low, lower, and moderate income households. In residential developments of 5 or more units, 15 percent of the dwelling units must be affordable. Developments of four or fewer units are not subject to the requirements of the recommended IHO. The recommended IHO provides the following alternative compliance options: • payment of fees in lieu of developing affordable units • allowing the affordable units to be developed on a separate site • allowing a developer to convey land suitable for affordable housing development to a qualified affordable housing developer • another reasonable alternative that a developer proposes The HOPE program includes portions of existing affordable housing programs and financing mechanisms already in use in the County. These include tax increment financing, leverage of financing resources, and density bonuses. Other aspects of the HOPE program, such as fee deferrals, include government-based incentives to encourage affordable housing development. Some of these may be considerations in the IHO should a developer request an incentive to mitigate the financial impact of the IHO. However, these types of financing or incentives would not be considered alternative compliance options for developers. "E' NMFM would require developers of all projects to pay a $3,000 per unit affordable housing fee. It also suggests that real estate agents donate one percent of their sales commissions to the HOPE program. (This would be approximately $4,600 per home in the program.) A flat fee, or a fee equal to one percent of the sales price of a new home could be considered as an "in lieu fee" option in the IHO. It is this portion of the HOPE Program that would most likely be developed as a compliance alternative in the IHO. To be consistent with the intent of the IHO, any compliance alternative would have to provide an equivalent or greater benefit than on-site development. The goal of the HOPE program is more closely aligned with the goals of the Housing Trust Fund initiative. FaithWorks! has brought together a broad-based coalition of organizations concerned Home Ownership Partnership Enterprise (HOPE) Program September 26, 2006 Page 3 BACKGROUND/REASONS FOR RECOMMENDATIONS — Continued with affordable housing issues in Contra Costa. The purpose of this initiative is to identify new permanent sources of financing for affordable housing development throughout Contra Costa County. This initiative aims to work in all of the cities and the unincorporated County. Homeownership assistance is a proposed use of funds along with rental and special needs housing. The proposed governing body would reflect the many diverse interest groups that are involved in this issue including businesses, labor, home builders (including for-profit and nonprofit), lenders, Realtors, non-elected government officials, the faith community, environmentalists, affordable housing advocates and representatives of special housing interest groups (seniors, disabled, and homeless), and geographic representatives of East, Central, Southwest and West Contra Costa County. Attachments: A. HOPE Program B. County Planning Commission Resolution No. 24-2006 C. 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Dowall —Cato Institute Tab 4— Do Affordable Housing Mandates Work? Evidence from Los Angeles and Orange County Reason Foundation Tab 5— Blue Housing Supply and Affordability: Do Affordable Mandates Work? Reason Foundation Policy Claims on Weak Evidence Vicotria Basolo & Nico Calavita Tab 6— Red Density Bonus—other Cities, counties and states experience San Juan County, Washington Province of British Columbia City of Sarasota, Florida Tab 7 —Teal TIF Financing —other Cities, counties and states experience State of Maine Dakota County, Minnesota City of Portland City of Chicago Tab 8—Green Fee Suspension — other Cities, counties and states experience Multiple cities Portland Oregon Fort Collins, Colorado i 4 i3��R s W Sy too r It i j�',l•� 3 ,_ "� O .irk: iv + 0 1 ,,ugII s Alto,l I t tr' 4 ra i; i' { _ a No r � r r - $ C�h� a r n- fly Z zO C7M 7 - _ tv ... ,..,..o-,3.. -..r .:I ... ........:... ... ... ....... .... •.. �J�:_:�,. r3. 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O Cl) O (D Ln O Ln Ln co Oo O Cl co to O O O Vi N Cl) N n � O M ;. Lc) O M O (D r Ln r (D O �:..k7,_ f� (D Lr) fD fA r R M r.:. LO N r r 69 w fft 69 64 69 6s ffl 69 C 00 O Or O !! ' cn f. E f..,. O m cc m N : . a oo � M. CD f- m >. O CU tm .... C _ _a D u O - G E N C a �' ' Q LU a) U e0) o f a)) Q to m f;;'„. 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O CD ff CD C:CND N CD < CD O fD Q O =r - � O N ^' _ �_ (D -� 00.. fD tD 1 n m O0 0. 3 m N m m mmCD .. - O Cr O- fl- n.G.`< CD O CD m O .� 2 m =..: �< << 0 N 2) CD CD c 2) M * .0 CD `D= CD M O m = CD =r CD ° O o a `. OPEN FORUM. The high price of land-use planning Randal OToole Monday,May 22,2006 Most.people know that the San:Francisco Bay Area has Printable Version one of the most expensive housing markets in the nation. Email This Article However, not everyone realizes that, as recently as 1970, Bay Area housing was as affordable as housing in many other parts of the country. Data from the 1970 census'shows that a median=income iMai'n.Ooinlon'Paae`: Bay.Area family could dedicate a quarter of their income to5 whroriicl0sndav:tr,siaht housing and pay off their mortgage on a median-priced ►chronicle+:carhDairn;s home in just 13 years. By 1980, a family had to spend 40 sF`Chconiele^:submissions percent of their income to pay off a home mortgage in 30 ►Letters:to':the w,►O.peri?F.anum>::�E: d:.,ito,r Years; today, It requires 50 percent. -�#Stindaysjnsiafi What happened in.the 1970s to make Bay Area housing so unaffordable? In a nutshell: land-use planning. During the 1970s,-Bay Area cities and counties imposed a variety of land-use restrictions intended to make the region more.livable. These restrictions included urban-growth boundaries, purchases of regional parks and open spaces and various limits on building.permits.These regulations created artificial land shortages that drove housing prices to extreme levels.Today, residents of Houston, Texas, can buy a brand-new four-bedroom, two-and-one-half bath home on a quarter-acre lot for.less than $160,000.That same house would cost you more than five.times.as much in Marin or Contra Costa counties, seven times as much in Alameda County, and eight to nine times as much in Santa Clara, San Mateo, or San Francisco counties. In fact, planning-induced housing shortages added $30 billion to the cost of homes that Bay Area homebuyers purchased in 2005. This dwarfs any benefits from land-use restrictions; after all, how livable is a place if you can't afford to live there? The benefits of protecting open space are particularly questionable. The 2000 census found that nearly 95 percent of Californians live in cities and towns that occupy just 5 percent of its land. Many San Francisco Bay Area counties have permanently protected more acres as open space than they have made available for urban development.When such actions make it impossible for middle- class families, much less low-income families, to afford their own homes, they represent a sad distortion of social priorities. Moreover, as in the 1980s, California's fast-rising home prices have attracted speculators who have created huge bubbles in the state's housing markets. Bay Area prices fell by 10 percent in the early 1980s, 20 percent in the early 1990s, and are likely to fall even more as the bubble deflates in the next few years. The impacts of high housing prices are also reverberating throughout the region's economy. First, economic growth has slowed as businesses look elsewhere to locate offices and factories. High housing costs have also increased prices for food and other consumer goods; retailers now pay $1 million per acre or more for store locations. Far from reducing driving as planners desire, high housing prices force many commuters to live farther away from their jobs,forcing more cars onto the roads. Ironically, an obsessive focus on protecting Bay Area "farmlands"(in fact,mostly. marginal pasturelands)forces people to move inland and more rapidly develop the'highly productive croplands in California's not-yet-so-unaffordable-,Central Valley. The people most enthused about all these planning rules like to call themselves "progressive." But the effects of planning on home prices are entirely regressive. Planning-induced housing shortages place enormous burdens on low-income families but create windfall profits for.wealthy homeowners. Does this.steal-from-the-poor, give-to-the=rich policy reflect the Bay Area's :true attitudes? Homeownership.is:more than just a dream, it is a vital part of America's economic mobility. Most small businesses get their original financing from.a loan secured by the business owner's home. Children in low-income,families who own their own homes.do.better on educational tests than those who live in rental housing. Barriers to home ownership,reduce this mobility and help keep low-income people poor. Predictably, planners'solutions to the housing affordability problem often make the problem worse. Planners typically require that homebuilders sell or rent 15 percent of their homes at below-market rates to low-income families. The homebuilders simply pass that cost on to the buyers of the other 85 percent of the homes they sell. Existing homeowners, seeing that new homes suddenly cost more, raise the price of their homes when they.sell. The result: A few people benefit and everyone else pays more. The solution to the Bay Area's housing affordability crisis is not a few units of affordable housing, but widespread land-use deregulation that.will make housing more affordable for everyone. Randal O'Toole (Mt@_ti.org is a research fellow with the Independent Institute, an Oakland-based think tank, and director of the American Dream Coalition (americandreamcoalition.org). His recent report, "The Planning Penalty: How Smart Growth Makes Housing Unaffordable,"is available at www.independnet.orp. Page B - 7 THE SUBURBAN SQUEEZE: LAND-USE POLICIES IN THE SAN FRANCISCO BAY AREA David E. Dowall A Suburban Land Squeeze Is Gripping the Region A suburban land squeeze has hit the nine-county San Francisco Bay Area:Extensive post-war land development,increasing use of growth- management controls,more.restrictive land-use and environmental regulations, and`a `.`go-slow" development posture created by the passage of Propositions .4=and 13 have combined;to reduce land conversion,opportuiiities in .the region considerately, Although the region contains an enormous.-supply of vacant land, because of its rugged topography or sensitive environmental character much of it cannot be developed. Other vacant lands that could be developed' are restricted fiom use by-local land-use controls. In 1975,the Asso- ciation of Bay .Area Governments (ABAG) conducted a detailed inventory of land use and'the availability and potential use of vacant lands. The inventory recorded that of the region's 4.5'million acres, only 350,000 acres were vacant and "developable."' (Figure 1 delin- eates the Bay Area and shows the location of principal cities.) Local Policies Are the Culprit The suburban land squeeze is not the exclusive result of immutable natural constraints."It is the outcome of the restrictive land use and development regulations imposed by many of the region's 100 local governments. Controls over the potential use of land have placed severe limits on where, when, and how the region can develop. For Coto Journal, Vol. 2, No. 3 (Winter 1982). Copyright ® Cato Institute. All rights reserved. The author is Associate Professor of City and Regional Planning at the University of California,Berkeley 94720. 'Summary Report,Provisional Series 3 Projections(Berkeley:Association of Bay Area Governments,March 2,1977). 709 CATOJOURNAL FIGURE I SAN FRANCISCO BAY REGION' ------- , SONOMA , • / 1, 11EA1.USBURG `.� NAPA • r SANTA �r ST.HELENA � I ROSA ,� VACAVILLE , • `� NAPA SOLANO PETALUMA FA111F1LLD i NOVATO ALLLJ. MARIN ' SAN RArAEL f RICHMOND CONCORD 1 • •ALVU �I • •W 'Y CONTRA T RERKIiLI,Y COSTA CREEK 0, •OAKLAND SAN FRANCISCO ~"1 DAL Y -- —�;. �^ LIVERMORE CITY • HAYWARD SAN RUN[) ALAMLllA SAN MATED % • YACI1�IC OCEAN FRF,MONT HALF ILEDWOOD_ —`----------- MOON CITY BAY ' i AI.O Al.TU~' i •SUNNYVALE SAN 0 M CU'^i SAN JOSE SANTA CLARA MORGAN �.� HILI. • ASSOCIATION OF KAY AREA GOVERNMENTS,14178 GILROY n In 211%111.I: SUBURBAN SQUEEZE example,.over 15 percent of the region's total land'supply is in per- manent open space controlled by local governments, the East Bay Regional Park District, and Federal National Recreation areas.-.For years, development has followed transportation corridors and filled valleys that lay outside the control of open space and park adminis- tration. During the early post war years, there was ample room for suburban land conversion,-and few attempts were made to stop devel- opment. Today,.land conversion in suburban areas is not so easy. Most of the easily developable land has beenurbanized, and anew mood has emerged in the suburbs, Continued suburban land con- version is now viewed as undesirable,and efforts to limit residential development are well organized.:and increasingly effective. Fiscal pressures are mounting, and most communities view additional res- idential development with great skepticism. The increased aware- ness of-.the environmental impacts of land conversion, fiscal prey- sures,and the dwindling physical supply of easy-to-develop land has radically altered the climate of suburban land conversion in the San Francisco Bay Region. The particular trends evident in local Bay Area.communities are very alarming. Residential Densities are Falling. If future development were to occur at current density levels, and.if landuse policies effected.in 1975 remain unchanged,the region could accommodate a population of over 9 million.In reality,however,development densities for new residential construction are substantially lower than historical den- sity levels,and recent evidence suggests that they will continue to decline. In 1975, given the existing local development policies,the Association of Bay Area Governments (ABAG) estimated that the supply of land available for residential development would not be sufficient to meet projected housing demand beyond 1990.2 In other words,the supply of developable land in 1975 could not accommo- date a projected 1990 regional population of just under 6 million. The Rise of Local Growth Controls.The pro-gowth attitude pre- vailing in most Bay Area communities in past decades has been replaced by a slow-growth posture,brought on by rising govemmen- tat fiscal concern over Proposition 13.Cities that once relished being regional growth centers now view growth with much skepticism. With the new fiscal calculus of Proposition 13, single-family devel- opment usually generates higher costs than revenues in the public 2Stan Hoffman and Rune Carlson, "The 'Compact Growth'Projection Alternative for the Air Quality Maintenance Plan,"PTEC Working Paper,(Berkeley:ABAG,July 1q, 1977). 71I CATOJOURNAL sector. This fact,-in.conjunction with .a.greater recognition.of the environmentalimpacts of development,.has inclined many commu- nities to slow.residential.development Infill Development Is Not a Panacea. While many planners tout the ability of so-called infill development in urbanized areas to accommodate housing projects, the strident opposition of neighbor- hood groups to,any use of vacant urban land makes developingsuch parcels difficult if not impossible.Besides neighborhood opposition, a national study of infill potential found that vacant urban parcels were.often too.small :and too expensive for housing development.a .Also, parcels were.frequently withhold.from the market by owners unwilling to sell them. jobs, But.No Housing. With. Proposition .13, most communities have altered their approach to land-use planning and zoning.Caught in a fiscal squeeze, many towns have stepped up efforts to increase their tax base.by attracting more commercial, office,and light indus- trial development. While attempting to attract economic develop- ment,most communities have not concomitantly adjusted their zon- ing to provide housing for additional employees.Consequently,new employees,particularly those migrating to the region,find it extremely difficult to acquire affordable housing. In terms of land availability, the ratio of residentially developable land to employment-generating land is out of balance. Moreland needs to be placed in residentially developable zones and less in commercial,office,and light-industrial use. Looking Out for Number One: Cities Against Cities and Counties. While local governments in the Bay Area have always pursued their own interests,recently intergovernmental competition and cutthroat behavior have escalated to alarming proportions. Competition is no longer a tug-of-war between cities to see who can attract the most development. The game is now more of a pushing match to see who can push the most fiscally and environmentally costly growth off onto other communities. These community pushing matches have enor- mous implications for the long-term development of the region, and are becoming very serious as more communities join in.In the past, as long as the number of communities attempting to push growth off onto their neighbors was small,the regional impact of such policies "Urban Infill:Its Potential as a Deoelopment Strategy(Chicago:Real Estate Research Corporation,October, 1981.) 712 SUBURBAN,SQUEEZE was minimal, since other towns could absorb the growth without much difficulty.With most towns trying to export undesirable-growth, fewer communities remain that are willing to pick up this pushed- off growth. The Adversity of Supply Restrictions If the current local land-use and development control policies remain unchanged, their inflationary impact on land and housing costs will ultimately slow the region's rate of economic growth and eventually affect its economic structure.Higher land costs will directly translate-into higher rents and building costs. Higher land and hous- ing costs will force up wage rates,:as workers are forced to pay higher housing costs. These higher wage and building costs will reduce the Bay Area's attractiveness to business and industry.As costs of housing and office and industrial space escalate, firms that are not able to meet these rising costs will move elsewhere. Firms such as Del Monte and Blue Cross/Blue Shield have recently left the region, These relocations cause hardship for employees: forced relocation or job loss. In Silicon Valley there is much concern over the increas- ing tendency of high-technology firms to-develop production facili- ties outside the Bay Area. If a significant number of firms"leave the region, finding substitute jobs may become more difficult—particu- larly if the job losses are concentrated in the clerical and blue-collar areas. The distribution of jobs in the region could conceivably shift from a more balanced mixture of professional, blue-collar, clerical, and service types to exclusively high-wage, high-productivity exec- utive types.What has happened to-San Francisco over the years may happen to the entire San Francisco Bay Area;that is,the whole region could become gentrified. Imagine the Bay Area as a homogeneous concentration of white collar professionals serviced by poorer work- ers who.commute in from Stockton or Tracy. With fewer.job opportunities, due .to a slower rate of economic growth,the region's younger population will have to seek work else- where. Perhaps this will be an analogous version of Italy; while southern Italian youth head to Milan and .Turin and other points north to find work, San Franciscans will head south to Los Angeles, Orange County, and San Diego. All workers will feel the effects. Unless they are willing to move elsewhere, the chances for job promotions, salary increases, and enhanced power and prestige will be limited if the region's economy slows down. In a steady-state economy,the size of a firm will remain constant; the chances of getting promoted depend on who retires, quits, or dies. (Unless, of course, you agree to move to a corporate 713 CATOJOURNAL division in,:say, Omaha.) For..better or worse, people have a solid stake in economic growth.While economic growth doesn't guarantee more employment opportunities.for the unemployed and underem- ployed,the prospects for economic advancement in the steady-state economy are slim. The Problems of Continued Urban Sprawl All of these projected impacts of economic strangulation are pos- sible, if we let cost pressures dictate the region's development.This is not.to suggest, however, that the San Francisco Bay Area should continue to develop unchecked; the prospects of paving over the landscape are every bit as alarming as letting land inflation choke off growth. Fears of turning the Bay Area into another Los Angeles have been voiced since the late 1950s.Many planners were afraid that the region would become completely urbanized. For example, two highly regarded demographers, Kingsley Davis and Eleanor Langlois, pro- jected that the region's population would rise considerably between 1960 and 2000, that the.population density would continue to fall, and that therefore the extent of urbanized land in the region would increase substantially.'The environmental impacts of such a scale of development are substantial: In 1920,when the urbanized area included only 157 square miles, it was not hard to get out of the city.When the sprawling metropolis of the year 2000 covers 7,663 square miles, the distance from the center to the periphery will he approximately fifty miles.Even after one has traversed the fifty miles,there will be no necessary release from urban congestion, for the traveler may simply find himself in the Sacramento or Stockton urban complex.- However, ABAG estimates that by the year 2000, the region's population will be 6,205,018, and that its urbanized land area will reach only 1,069 square miles. The problem is no longer the paving over of the region; it is whether there is enough developable land to accommodate growth. Pressing Regional Problems Fears that the San Francisco Bay Area will become completely urbanized have been joined by more recent concerns that growing restrictions on land conversion and development by local jurisdic- tions are beginning to limit urban development in the nine-county 'Kingsley Davis and Eleanor Langlnis,Future Demographic Growth of the San Fran- cisco Bay Area(Berkeley: Institute of GOVerninental Studies, 1963). 'Ibid.,pp.26-27. 714 SUBURBAN SQUEEZE region, The region's future urban developmentis being det,&rmined by the individual land-use policy decisions.Made by over'100 local governments.Over the years,the staunch independence of the region's local governments was regarded as desirable,guaranteeing diversity in living environments and public services.While efforts were made to make local governments more responsive to:the needs of the region's low-income households,and State Assemblyman Knox intro- duced his bill to establish a regional government, the Bay Area has never seriously considered creating a regional government with broad controls over land useand development. In the past 10 years a number of subtle changes have cumulatively altered the climate:for continued urban development on the suburban-reaches of the Bay Area. These shifts have had the overall impact of constraining resi- dential development. These constraints have created a variety of concerns: 1. The region's housing supply is being restricted, and it is not keeping pace with growing housing demand. 2. .Housing and land prices are escalating sharply. 3. As workers scramble to find affordable housing,there is.a g3-ow- ing imbalance between the location of jobs and housing. 4. The jobs/housing imbalance is crowding the region's transpor- tation system. Freeways in the southern portion of the Bay Area are extremely congested as more people have to live in lower-cost housing areas in southern Santa Clara County and southwestern Alameda County and.commute to jobs in northern Santa Clara County. 5. Because more communities are restricting residential devel- opment or reducing the permitted density of housing develop- ment, sprawl continues,leapfrogging out to more hospitable areas or consuming land at very low density. A Survey of Local Planning Departments In an effort to assess the regional implications of local land-use policies, the Institute has been surveying Bay Area planning depart- ments since the spring of 1979. The results of the survey provide a useful picture of the current state of local land-use policies and allow us to develop several important conclusions about the regional impacts of restricted suburban development opportunities. The survey con- firms that the future of land conversion in the Bay Area is not•bright; opportunities for continued residential development appear to be limited; and there are already signs that a severe housing shortage 715 CATOJOURNAL is ..beginning :to affect the continued. expansion .of.the electronics industry in Santa Clara County. This research shows that many.cities.that.once were-accused of land-grabbing have now.curtailed land:annexations.Wary of'expand- ing city-services to outlying unincorporated areas,.cities:are not court- ing annexation.proposals.While some cities limit annexation to adja- cent parcels, others simply refuse to:annex unless forced to by the Local Agency Formation Commission (LAFCO). In most instances, no annexation means:that development cannot occur. While it is possible to get county approval for development in unincorporated areas, counties are also facing fiscal constraints. In Alameda County, for example, a proposal was recently put before the Board of Super- visors to reduce rural development densities even further, The con- cern was that if the county Allowed development to occur in clusters, the new residents would then band together and demand increased fire and police protection,.both of which are costly. Fiscal considerations .also play an important role in shaping the development of incorporated.areas. Many planners indicated great interest in the possible use of fiscal cost-revenue impact models for assessing the effects of proposed land development projects;These models are used to determine the tax and expenditure implications of proposals. Often their findings are used to keep out projects that .would not be likely to generate a fiscal surplus. This survey confirmed that continued development was a growing concern of citizens. Over one-third of the respondents, representat- ing 34 communities, indicated growth as a major local issue. Of these 34 communities, nine had implemented growth-management ordi- nances, and seven others either had proposals pending adoption, or were considering them. While each ordinance is designed differ- ently, the effect is the same: to restrict the pace and extent of devel- opment. Many of these programs, by the way they are administered, delay all development,in some cases up to EL year. For instance,cities using a competitive allocation system accept proposals throughout the year, and then meet only once or twice per year to decide which projects can.proceed. The survey also documented the increasing use of development controls to protect environmentally sensitive areas. Nearly one-half of the region's cities have,or are currently developing,slope density ordinances to regulate hillside development. Using the slope grade as the determining factor, residential areas may be downzoned from minimum lot sizes, of 10,000 to 20,000 square feet, to 1-10 acre minimums.The increasing use of this technique suggests that devel- 716 SUBURBAN SQUEEZE opment,..having consumed much of:the land on.the valley..floor, is now encroaching on the.hillsides. . Downzoning.is by no means limited to.environmentally sensitive areas.Over one-third.of the.planning.agencies indicated.density.and -preservation of:a community's.single-family character:as.significant concerns. Citizen expectations,.then, can.have as great an.impact on land use as the land's own inherent characteristics. One Bay.Area developer designed a mixed project combining both..high-.and low- density residential units, but made the mistake of constructing the single-family.units first. When .he later tried..to phase:in the:multi- family.units, he met with considerable opposition fi-om the newly settled residents in the single-family homes. Our research found these concerns about density increasingly evident as motivation for recent zoning changes. Approximately 39 communities have down- zoned residential densities over a significant portion of the commu- nity,further reducingdevelopment potential inthe region. Another indication of the increasingly cautious approach to'devel- opment is the use of:moratoria.to:halt development, giving a city time to study its options. In recent years, over 45 communities:have used this technique to defer development, while new plans or:poli- cies.are devised to deal with problems generated by rapid.growth, environmental impacts, or.service-capacity constraints. While these actions are understandable when viewed at the com- munity:level, we believe that-the long-run economic and social well- being of the Bay Area depends largely on.the availability of land suitable for residential,commercial,and industrial use.Communities are adopting policies that,while furthering their own short-run inter- est~, are likely to have dire consequences for the region. Why Local Land Use Policies Have Changed How a community decides to control land use conversion and development depends on a variety of historical, cultural, .political, fiscal,and environmental factors. Critics of the go-slow mood are quick to suggest that the growth- limitation binge is the result of elitist newcomers trying desperately to preserve what they came to enjoy. It is sometimes referred to as the"gangplank syndrome,"where newcomers try to stop others from moving in. Such a characterization is incorrect;it is overly simplistic, and it erroneously places too much emphasis on elitist citizen pres- sure.Other factors are at work,including intergovernmental finance, environmental degradation, and the general but hard-to-pin-down 717 CATOJOURNAL effect.of what Ta£fler calls"future shock" the inability of people to cope with rapid social and cultural change.' Until recently,many Bay Area communities have been the passive recipient :of substantial residential and commercial development. Most towns accepted.growth as inevitable,and a few actively pursued new development. To guide this development, towns and counties relied.on zoning and general plan guidelines that were, at least in the beginning, very unsophisticated. Most community zoning ordi- nances,for example; failed to consider the environmental character- istics and development implications of the region's hillside areas.In fact, until the early 1960s, many communities' hillside areas were zoned at the same density as the flatlands. Historical Growth Patterns Prior to 1950, development was primarily concentrated in the cen- tral Bay Area. The two central cities of Oakland and San Francisco accounted for more than 50 percent of the total population in the nine-county region. To the north and south of San Francisco, and to the east of Oakland, agriculture was still the dominant land use in the 1940s. During the early post-war years, the Bay Area began to change rapidly. The 1950 census revealed new patterns of development_ Returning veterans took full advantage of Veterans' Administration home loans.The demand they created was accommodated by devel- opers who availed themselves of the low-cost land on what was then the urban fringe. In 1950, for instance, nearly one-half of all new units in Alameda County were built in unincorporated areas. San Mateo County, once a haven for the wealthy, doubled its population in a decade; Santa Clara County experienced a two-thirds increase. Between 1950 and 1960, the Bay Area population increased by nearly 1 million. Much of this growth was concentrated in southern Alameda, San Mateo, and Santa Clara Counties. South of Oakland, along the Bay, San Leandro and Hayward grew by 140 and 400 percent respectively. In San Mateo,along Route 101,five cities more than doubled their populations. Land development in the decade preceding 1960 set the pattern for the years to come. Growth spread out along all major transporta- tion corridors; small towns within commuting range of employment centers became major cities in a few short years. During the decade it was common for communities to boast about their growth rates, BAlvin TofHer,Future Shock(Nein York:Random House, 1970). 718 SUBURBANSQUEEZE wid.1 several.above 400.percent:"Cities competed for both:industrial an •resideiitial`deve opment.' During the 10-year period'from 1960 to 1970,.the'Bay Area again grew by nearly 1mmf11ion.Few cities were untouched liy the increase, and•tbe`60s saw several notable new trends irr developrrient:Gi owth 'spread-south .in Alameda`Cournty into the Fremont/Newark/Union City-area, and:east alongthe'Interstate 580 corridor into the Liver- more Valley area. `The-,widening .of`Highway 24 lin Contra Costa. County opened_up thousands of acres.to development. Cities along the freeway such as:Lafayette,Pleasant:Hill,and Walnut Creek expe- rienced substantial gains in population. Though•industrial development was minimal to the north of San Francisco;.towns along US, 101 gained i significant:commuter,popu- lations.While Sonoma and Napa Counties retained their agricultural character,the cities of Santa Rosa and Napa developed into regional centers of-substantial size. In the South Bay,-development continued as ithadinthe::preceding decade— at ant extraordinary pace.:Rapid.growth in light ,industry provided exceptional employment opportunities.By 1980,Santa Clara County, with.:25 percent of-the region's population, surpassed Ala- meda and San Francisco to become the region's largest county.. By 1975, development had.consumed nearly half of.all..the devel- opable :land:in the Bay Area. Population., once concentrated in the central portion of the region,shifted south and east. Now,since many cities in the South and East:Bay are .solidly built up to their city limits, pressure to develop in the-North Bay has increased dramati- cally. North Bay counties, traditionally agricultural, view this shift with mixed emotions. The .historical .process of urbanization has had hvo fundamental effects on.the posture of local communities towards land develop- ment. First, the historical pattern of centrifugal development intro- duced an entire new set of.rural communities to growth .pressures. Second, the impact of substantial post-war growth began to exert itself on communities, particularly traffic congestion, air pollution, and dwindling open space. Towns impacted by rapid urban devel- opment increased from a handfid to several dozen.Peripheral devel- opment in.the region.exposed many%more communities to planning issues, and as a consequence, led:them to consider more sophisti- cated development regulations,and ultimately revamp their general plans and zoning ordinances. Growth Pressures Created A New Mood Over time, the rapid rate of land conversion in the region's rural areas began to attract considerable attention. The conversion of fi-uit 719 CATO.JOURNAL orchards .in..Santa::Clara County,sand;.pressures-on,.the :vineyards:of Napa and Sonoma Counties,focused attention:on the.adverse Affects of-urban development on the region'.s:landscape. By the late.19.60s the:environmental.movement had.shifted into.high gear. .By 1972, environmental regulation in the.Bay..Area was .well -developed..:.In Sonoma County,the city of Petaluma adopted.its controversial..growth management plan, which limited:::the.number of.building.permits that eould.be issued:in any one yearto:500jbis gained widespread attention. Given its importance.in.shaping local land-use and envi- ronmental .regulations in the .region, .the Petaluma case warrants closer study. In the 1960s, the widening of U.S. Highway 101 clearly put the city.of:Petaluma within the sphere of San Francisco. City workers looking .for inexpensive housing, .large residential lots, and:.good schools were attracted to Petaluma. Residential construction boomed, and rapid growth greatly strained city services. The new develop- ment forced the city to provide..substantial new services and expand existing facilities. Congestion. developed on the city's streets;.and long-time residents.denounced new growth as having destroyed the small-town character of Petaluma. A report by the American Society of Planning Officials details':.the Petaluma plan: In response to these concerns,a series of goals were adopted.Growth was to be limited to approximately 500 new housing units annually from 1973-1977. The city's small-town character and surrounding open space were to be preserved by controlling the rate and distri- bution of,growth..Development.was tied.to school and utility capac- ity andbalanced between eastern and western sections. With the cooperation of Sonoma County, all urban and suburban develop- ment near the city would be approved by and acceptable for annex- ation to the city.A permanent greenbelt of open hills and marshland and open space for recreation would be provided. Environment design plans,planned community districts,and planned unit devel- opments would be required to gain the best design possible. Mul- tifamily units would be encouraged and a variety of densities.and building types ensured. The central business district was to be rehabilitated as the principal commercial center of southern Son- oma County.' This marks a radical departure from traditional community plan- ning. In the United States, particularly during the post-war period, local planning can be best characterized by its attempt to accommo- date new growth in an orderly fashion. Prior to Petaluma's growth management plan, most communities had not overtly attempted to 'Urban Growth Management Systems,P.A.S.Report Nos.309 and 310(Chicago:Amer- ican Society of Planning Officials,no date). 720 SUBURBAN SQUEEZE limit.or restrain development, The widespread attention accorded the'Petaluma.plan.has had substantial impacts-on loca_Yplanning.At annual meetings of the.-American Institute:of Planners and American Society of Planning:OfPicials, lively discussions.of.,growth-manage- ment.programs`.have been rituals. Many communities confronting similar growth pressures began to experiment with.growth manage- ment. By the mid-70s, national surveys of planning activities.began to reveal a growing trend towards the use of;growth=management devices.Ina survey by the International City'Managers Association, over 220 cities and counties indicated that they were using planning controls to regulate the rate of urban development.' In California, the State Office of Planning and'Research Annual'Planning Agency Survey found that over 300 of the state's 445 local planning agencies were using growth.management and more traditional techniques.to control the rate.of land development." In the Bay Area alone, this 1975 survey identified nearly 50communities that were attempting to control the.pace of development. The effects of growth manage- ment on housing and land markets,are just beginning to be felt as more and more towns adopt growth management programs. The use of growth controls by California communities is likely to increase.Such controls allow the community to avoid increased fiscal costs, minimize the rate of land conversion, and preserve environ- mental and overall community quality. Also, the fiscal squeeze ore- ated by Proposition 13 has made communities exceedingly cautious about the benefits of new development. Because tax revenues from new development are limited to only one percent of the full market value, many projects will not generate enough tax revenues to sup- port the public services they need.With less revenues generated by projects, the margin of error in deciding which projects to approve or deny is narrow. As a consequence, many communities are not approving fiscally questionable projects, while other towns with more sophisticated cost-revenue estimation models are using them to determine which projects will generate an excess of tax revenues. Proposition 13 is a strong justification for limiting urban develop- ment. While the fiscal arguments for growth control have been mounting, concern for environmental and neighborhood quality has also been increasing. Rising incomes and increased Ieisure time have contrib- uted to the greater demand for high levels of environmental quality. '"Managing the Environment at the Local Level," Urban Data Service Report 2/74, International City Managers Association, 1974. 'Office of Planning and Research,Local Government Planning Survey, State of Cali- fornia,1976. 721 CATO JOURNAL. .The inc:reased:sophistication of citizensaboutenvironmental issues .and.how development.a&cts environmental quality has helped to expand the role.of citizen involvement in.local land-use and envi- ronmental decision.making. Citizens no.longer assume that the.plan- ners or elected officials know what is best and that the.y.must pas- sively accommodate new development. As a result of this new .style of local:.planning, cities are.more aggressively.seeking:their own objectives and are:placing less impor- tance.on regional development needs or.the regional implications of their local actions.While it would be erroneous to suggest that com- munities have not always pursued their own self-interest,we believe that in recent years the nature and interaction of local development decisions have changed fundamentally. In the post-war period,com- munities either accepted development as.inevitable or often sought it aggressively. Even when a large number of towns actively sought growth, the regional impacts of this growth-seeking competition were usually considered desirable. Communities are still interested in high-duality development;the proverbial dream industry of research and development is still much sought after, but they are also inter- ested in exporting-or blocking undesirable.gTowth.Communities will accept new tax-revenue-generating R&D, but they will at the :same time curtail housing production;even if the housing is targeted towards the R&D workers. Efforts to block development, or to allow only the very best or most desirable types of development, areriot new. Land use and zoning history chronicles numerous cases where local communities exerted considerable control over the type of residential develop- ment permitted within their borders. In fact, zoning in the united States is founded on the principle that it will be used to protect and preserve property values."'What is different today is not that towns try to skim off the best type of development and block the entry of less desirable or more commonplace development, but that the prac- tice of limiting growth has become so widespread.The days of uncrit- ical pro-growth boosterism are over. As each community attempts carefully to control the rate and type of development, the problems of restricted growth at the regional level become much more pronounced. There is no indication that local governments will soon begin to incorporate regional needs into their decision snaking. The fragmented nature of local land use and environmental planning is well documented. For example, over 10 'ORichard F. Bitbeock, The Zoning Game, (Madison: university of Wisconsin Press, 722 SUBURBAN.SQUEEZE years ago,the Cate for.<nia.Law.Review published,an.article-deriding the selfish and short-isighted nature oflocal:government development policies.11 Despite frequent attempts to pass legislation to alter-the mercantilistic..pattern.:of'local.:governments,reform is no.more likely now than-it ever was. The most recent discussion of the regional.problems engendered by local actions is centered.in Santa.Clara County. Exacerbated by -the.rapid.growth of the electronicsindustry in Silicon.Valley, the county commissioned:atask force to.study the growing.problem:of limited housing..Northern.Santa.Clara County communities.have aggressively sought new manufacturing firms and increased employ- ment,buthave almost univeysally limited the construction ofhousing to meet the needs of an expanded employment base. Despite_the.fact that a limited.supply of'housing has begun to drive up prices., and slow the rate of economic development in the county,no community. appears willing to alter its landdevelopment policies to allow for an increase in the production of housing. The task force's report iden- tified the need for more housing,12 but only a few.communities have attempted to deal with the problem. The main center of concern is in the private sector.The Santa Clara County Manufacturing Group has been monitoring the trends, and has called for more residential construction. The Bay Area Council, the region's influential private-sector planning organization, has established a.housing task force to study the area's housing markets and recommend strategies'to increase the opportunities for residen- tial development. Change is not likely to come from local planners or local elected officials.Both must continue to promote the interests of their constituents or face recall or firing. Even though they know that the region desperately needs additional housing,'local officials are forced to deny building permits for residential projects when local sentiment against such development is vocalized at planning and city council hearings. The basic contradiction between local and regional interests is painfully apparent in the housing arena. The problem is in fact an excellent example.of the prisoner's dilemma. If one of the commu- nides in Silicon Valley were to say; "All right, we recognize the dire regional consequences of restricted housing production, and we are prepared to provide more housing,"the other cities in the area would . "Steven H,Goldfarb,"Parochialism on the Hay.An Analysis of Land-Use Planning in the San Francisco Bay Area,"California Laic Review 55(1967):836-55. 12See Living Within Our Limits, the report of the Santa Clara County industry and Housing Management Task Force(San Jose;County of San Jose Environmental Man- agement Agency,November 1979). 723 CATO JOURNAL be able.to continue.to cream off:fiscally desirable economic devel- opment and export residential development to our noble.but foolish community. Examples of mercantilist action in Santa Clara County are.abun- dant. The city of San.rose, the growth center of the county and the historical center of suburban residential development, has recently altered its policy on residential development. Citing fiscal pressures and the imbalance of.predominant residential development resulting from its historical role as a residential suburb, the city has now taken steps to limit the location and type of residential development.per- mitted and is attempting to attract more industrial and commercial •development This shift in land development policy has the net effect of moving San Jose from its original role as a provider of housing into a position of competing for economic development opportunities with other county communities.Another example is the City of Santa Clara. Its zoning and general plan greatly curtail the development of residential projects: Most of the vacant land in the city is zoned industrial,and the city has taken few steps to balance this economic development potential with the necessary level of housing to meet the needs of additional workers. Needless to say,the regional implications of efforts such as these are adverse if enough communities follow suit, and recent survey results of local .development policies clearly indicate that this is happening. Ultimately, if.housing opportunities in the region are limited by attempts to maximize tax and economic benefits or to preserve environmental or neighborhood quality,the housing market will become extremely tight,and eventually high housing prices will exert severe economic pressures on all sectors of the region's econ- omy. The Regional Impacts of Local Land-Use Policies While 20 years ago over 40 Bay Area towns provided ample land for development, new growth pressures are concentrated on 16 cities and the unincorporated areas of Contra Costa County. Between 1975 and 1979,these regional growth centers accounted for 67,000 housing starts, about 46 percent of the region's total production. As we have seen,this concentration of regional housing production is a reflection of the historical patterns of development and land conversion, and of the restrictive land-use policies of many other Bay Area commu- nities. What are the implications of this concentrated pattern of land conversion on the region? 724 SUBURBAN SQUEEZE The Geography 9f Regiondl:Grow.th11H s Shifted Unless trends change, the.principal.area;of'..growth will be in the northeast'portion o:,66 region: Seven of the=16.growth-center cities are located:in northern:Contra:Costa and .Solano.Counties. These cities,along with the-unincorporated portion;of Contra;Costa County, provided .nearly 21,000-housing units between 1975 ..and.1979, accounting for 16 percent of total regional production.The-availabil- ity of.cheap, buildable .land, together with.limited restrictions on land development, has made this the:prime area of.large-scale.resi- dential development. While-this area has not1istorically been.the center of much employment development, demand for housing.has been strong. Many first-time buyers are willing to commute long distances to work in order to buy.affordable housing.This mismatch between the- locations of affordable housing and employment is evi- dent in the growing traffic congestion on Interstate.Highways 80,680 and 780.Over time,however,itis likely that jobs will follow housing into the northeast portion of the region. The imbalance between job and housing location is also a major problem in -the southern portion of the region. While substantial employment growth has occurred in southern San Mateo and north- ern Santa Clara Counties, little.housing has been provided. Conse- quently,housing pressures are intense and many workers in the high- technology industry are forced to commute from the East Bay.Traffic levels on the San Mateo and Dumbarton-Bridges have grown consid- erably in the past five years, and the housing markets in Fremont, Hayward, Castro Valley, and Livermore are affected. While people are willing to snake long commutes, many high-technology firms say that they are beginning to have trouble attracting employees. The Santa Clara County Manufacturing Group, an organization of high- technology firms, has estimated that enough land is zoned to create nearly 250,000 jobs but only 80,000 housing units. The efforts to attract fiscally desirable, clean industry has led many Santa Clara County communities to provide large tracts of industrially zoned land and not much residentially zoned land. If only one or two of the cities did this, the housing impacts would not be great, but most of the larger cities in the county have adopted policies favoring industrial and commercial development over residential development. The Manufacturing Group has been pressuring local governments to alter their land-use and zoning to permit construction of housing in what is now industrially zoned land. Unless substantial changes occur in the local zoning ordinances of most cities in Santa Clara County,the growing imbalance between job and home location will persist. 725 CATO JOURNAL Without the renews %o .residential.development in such areas as the northern part of Santa:Clam County;.bayside.San Mateo County, or southern Mariri'.County, new residential`development will con .. .. tinue in other parts of.the Bay Area. The implications are that mod- erste-income home.;buyers will be forced to purchase houses in Solano and eastern Contra Costa Counties and in scattered cities in Alameda and coastal San Mateo.Counties. The residential.develop- merit of these outlying'areas of the region will generate substantial urban sprawl, and will continue to fuel the process of economic decentralization away from San Francisco and Oakland. The rapid development of office buildings in Walnut .Creek, Danville, San Ram6n, and Dublin is indicative of this trend. While the overall results of such decentralization are complex and not completely understood, the development of these outlying cen- ters may have:adverse consequences for the region's older centers. The office boom in Contra Costa County makes it very difficult for cities like Richmond, Berkeley, and Oakland to intercept decentral- izing firms. Local Growth.Restrictions Have Affected Competition Among Builders One clear result of the local planning survey is that land-use reg- ulation has become much more complex in the past 10 years.Anyone attempting to develop land in the Bay Area must now go through many steps to obtain permission to develop.While the closer scrutiny provided by the more sophisticated regulations has protected the environment, it has also led to a lessening of competition among developers. The building industry is now much more concentrated than 10 years ago; today there are fewer builders, and those who are developing residential projects are larger and have a greater control over local markets. Local land-use controls can restrict competition in the construction industry in several ways. First, zoning and open-space preservation limits the supply of land available for development which acts as a barrier to entry to new firms. Zoning makes it easier for one or two developers to tie up land. If only a few developers control all of the developable land in a local housing submarket, they can keep the price of new housing high,above the level that would normally occur if the local market was competitive. Another way local land-use controls unwittingly confer monopoly power on developers is their extreme complexity,making developers reluctant to enter local markets. The costs and uncertainty of adjust- ing to new and unknown administrative prog-ams is high, Devel- 726 SUBURBAN SQUEEZE oilers whci:liave.establishe. go d working.relation-hi ps.w`ith:plan- niitb 9tiifl'shave a better chanci of obtaining development approval. If developers can`shepherdprojects through complex.adiniiiistrative review systems,they can and will charge eXcess.prices forthe'approved units. For example, a study of developments inSan Joffe found that after holding constant for increases`irilabor,materials;acid land costs, and-for increased.puhlic requirements andhousing.quality,between 1967 and 1976, the two developer..projects.analyzed�increased.their gross.profits (.in constant dollars).by between 158 and 231 percent." The-.researchers concluded that:these:excess .profits .were partially the-result of constrained:housing supply.and.the:exercise of monop- oly power by the developers. A third way that local government policies can restrict competition in land and development markets is•.through the increased-financial requirements placed on developers to provide public infrastructure. With the passage of Proposition 13,communities pare now hard-pressed to provide the infrastructure needed for-new development. Conse- quently,localities now require developers to provide needed utility systems. While shifting the financial burdens to developers solves the immediate fiscal concerns of local government, it makes it very difficult for small developers to operate.As front-end costs increase, the small developer-builder finds his capital costs.-rising. lf:present trends continue, only<the largest, well-capitalized Anus will remain in the marketplace,.and the concentration of economic power in the hands of a few large developers will continue. With:the present widespread use of restrictive land-use .controls and-the shifting of public-sector infrastructure costs onto developers, the reduced level of competition in the residential construction industry is likely to continue." Limited competition and greater economic power will exacerbate housing price inflation in the.Bay Area. Regardless of whether suburbs are lirriAing; residential develop- ment because of no suitable land, increased citizen opposition to new development, or fiscal pressures,the implications are the same: the region's mousing supply will not expand to meet the demand. projected for the 1980s.This housing squeeze will continue to drive up housing;prices and place extreme hardship on young families. If housing price increases maintain a sustained upward climb,the-vital- "Gruen, Cnum and Associates, Effects of Regulation on Housing; Costs: The Case Studies(Washington,D.C.:The Urban Land Institutc,1977. "David-E. Dowall, "The Effects of Tax and Expenditure Limitations on Local Land Use Policies," Perspectives on Local Public Finance and Public Polio,vol. 1, fnrth- coming. 727 CATO JOURNAL ity of.the.regional economy will be jeopardized. Fortunately, key regional and.state;groups:now.recogriite-the.scope and..magnitude.of the problem and...are"Beginning to develop programs to solve the region's.housing:problem, Solving the Suburban Squeeze The fundamental:problem facing the San Francisco Bay:Area,:and many other.high-demand metropolitan areas, is the low level of housing production. " Solving the.:problem will be difficult and polit- ically contentious. It cannot be:solved without the joint cooperation of local and state government,developers and businesses,and citizen groups, Removing.Fiscal Disincentives The first change needed to produce-more housing is to change the structure of intergovernmental .fiscal relations so that housing-is no longer perceived as:a fiscal"albatross."This would require that state funds to.local governments.be..partially geared to local housing.con- struction. .If.the incentives were substantial, it is conceivable that much more.housing.could.be produced. Another possible.way of:eliminating .the fiscal .disincentives of housing production is for states to take over the financing of local infrastructure and selected services (such as education).-.Freeing local governments from having to provide these services would reduce the tendency of local governments to block new development. Or if the "top-down" approach to .infrastructure finance is unacceptable, new quasi-public special districts could be created to finance ser- vices. New service districts in developing areas could float revenue bonds to finance infrastructure. Funds to support residential development also could come from corporate and public pension funds. If the housing squeeze gets worse,some businesses,particularly those that are not footloose,may be willing to finance or partially underwrite infrastructure finance. A frequently mentioned technique for eliminating fiscal zoning is tax-base sharing. If a regional property tax sharing district were cre- ated; cities might be less inclined to develop industrial and com- mercial districts at the expense of housing. If intergovernmental fiscal relations could be altered slightly, so 'While the San Francisco Bay Area has the most chronic case of restrictive land-uso regulation,other metropolitan areas show signs of land constraints(Houston,Washing- ton, D.C., Bosion, New York). For a discussion of these areas see D.E. Dowall,The Suburban Squeeze(Berkeley:The University of California Press,forthcoming). 728 SUBURBAN SQUEEZE that housing :.was not viewed as a $seal drag,efforks`:to ,promote housing production-would be greatly facilitated.However,changing the financial.picture alone will.not guarantee more housing; other changes:are-needed. Promoting Higher Density and Mixed-Use Development The density of:residential development in many metropolitan.areas continues to fall.Attitudes about high-density development are:largely negative,and are reflected in the marketplace and at public hearings. A recent Bay Area Council public-opinion poll -found substantial adverse sentiments about additional residential development.gen- erally,and high-density development in particular.Thirty-three per- cent of the respondents agreed with the statement that "new resi- dential development in my community would threaten the quality of life of current residents." Fifty-four:percent of the same respon- dents agreed that "high density housing means lower•quality of life."16 The negative response to high-density-environments is based on many factors,but one reason people are against it is because they don't know what the-benefits are, and they don't know of any good examples. While somewhat less controversial, mixed-use development suf- fers from a similar negative image. Most cities refuse to permit hous- ing in commercial and industrial areas. Much of the resistance to mixed-use development stems from neighborhood opposition,prob- lems of security, and conflicts over circulation between different types of users. If land is to be used more economically, communities must begin to permit higher density projects and allow housing in commercial and light industrial areas. An educational and technicalassistance program could begin to reduce opposition to high-density and mixed- use development, Such a program should concentrate on planning commissioners, elected officials, planning staff, and neighborhood groups. The educational and advocacy effort could be mounted by state or regional governments, or by specially created private, non- profit institutes. While it will be difficult to convince communities that higher density and mixed-use development is needed to provide housing and preserve environmental lquality, it is fundamental for solving the suburban squeeze. A Regional Housing Advocacy Group Needed There are no well-organized groups to advocate increased housing production. Opposition to development comes from residents who 1BBay Area Poll(San Francisco:The Bay Area Council, 1980). 729 CATO-JOURNAL have.much :to.::gain.:.and little to loose by stopping development. At present, :on-1 :the..:.project,developer stands as the primary advocate of.housing.development-Future homeowners, workers who cannot afford to live near where they work, and businesses.that cannot find workers have no representatives at local planning or city council hearings. .A regional housing advocacy group to aggressivelypromote hous- ing production in communities could be very effective.The advocacy group could operate on.three distinct levels. It could act as a clear- inghouse for information about how to increase housing production. It could distribute model ordinances and .information on how to promote dense,compact development and on the advantages of higher density and mixed-use.projects. On a second,:more.active level, the advocacy group could provide-technical assistance to communities wanting to reduce development permit processing time, rezone industrial .land, and.allow mixed-use development. The advocacy group could also make presentations to elected officials, planning commissioners,planning staffs,and neighborhood groups to explain why more housing is.needed,what the benefits.are of higher densih- development, how it can be provided without disrupting .the local environment, and what services.the advocacy group could provide to communities. The advocacy group also could operate as an aggressive force to press communities to increase housing production.The group could attend local .planning commission hearings and seek approval of higher density projects. It could act as a housing proponent at project hearings and:strive to offsetlocal opposition to development.It could urge communities to fully implement recently adopted housing leg- islation (discussed below) and to take other steps such as rezoning industrial land to residential use and allowing construction of resi- dential units in commercial areas. If these steps fail,the group could take legal action against cities that refuse to comply with state hous- ing.and planning law. Such a group could crystallize diffuse pro- housing interests among young,renting families unable to buy houses and counteract the overwhelming opposition to new development common at planning commission hearings. It could provide the base for developing a consistent housing production policy for the region and probably gain support from many groups that are not now actively engaged in housing advocacy. Corporate.Participation Most corporations assume that communities have their interests at heart when making planning decisions. While in the past this might 730 SUBURBAN SQUEEZE have.been%true�It ma.y no:longer:be..so: Local .el ected:.officials.and planners are nvw..greatlyiri$uenced liy.the views and political power of neighbo'r'hood groups:"These well-.organized groups:'have learned howto.shape localland development policyand.knowhow.toblock undesirable projects.1f businesses want communities to help them to continue to grow,they must play a more active and.aggressive role in local politics. While most companies,particularly large ones, are reluctant to'be involved, they will.find it more and more'necessary. To help corporations effectively get-their views across., a regional housing advocacy organization could help focus business housing concerns and-promote..'their interests. State.Legislation,-A California Example In the .1980 legislative session a number of.housing bills were signed into law. The most significant, AB 2853, requires .that.local governments consider regional housing needs when preparing the housing element of the general plan. Specifically,AB 2853: • ensures that local governments recognize their responsibility to helpmeet state housing needs; *-ensures that local 4 governments implement housing elements that move toward the attainment of state housing goals; • requires that local housing determinations and actions are com- patible with state housing goals and regional housing needs; and • ensures that local governments cooperate with each other to meet regional housing needs. The bill requires local governments to embrace the concept of regional "fair-share" housing needs. under the new law, local gov- ernments must revise their housing plans to insure that they provide their'fair share of housing. On paper the law is very promising; if it is fully implemented,more housing units are likely to be built in the region. But much money will be needed to implement AB 2853, and many communities are ideologically opposed to it as an unwarranted intrusion by the state into local affairs. Regional.governments must determine what the region's housing needs are and what each com- munity's fair share is. A recent ABAG memo estimated that over the next 18 months, it would cost$348,000 for ABAG staff to prepare the necessary housing estimates. unfortunately, the State Assembly did not provide funds to implement AB 2853. As the once massive state budget surplus runs out, funds to regional and local governments will be limited. The big question is: Will AB 2853 be implemented? And what will happen if it isn't? 731 CATO.;JOURNAL The.bill can.help:to dramatically.increase:housing...production.in. the Bay.-Ai-ea- Each local.:government must assess its housing:needs and.its regional .share, state its community:housing goals,.and set forth a.five-year..program for meeting its housing needs :and objec- tives..To.meet the.housingmeeds cif all econornic segments, the-plan must determine.how.to administer land-use and development con- trols, _provide regulatory concessions and incentives, :and utilize appropriate.fe deral and-state financing and subsidy programs. The .progress of California communities .toward ,meeting the requirements.of AB.2853 should be closely followed.If communities fail to take appropriate action, a.regional housing advocacy group could file law suits as necessary. Also, new follow-up legislation should be prepared to insure that the housing objectives of AB 2853 are being met. More stringent legislation should be prepared in the event that AB 2853 is not implemented. Conclusion Over the past 20 years the process of suburban land conversion has changed dramatically. In many areas the supply of.land that is easy to develop has dwindled, and developers are.trying to develop more sensitive and controversial parcels of land.Environmental con- cerns have given rise to more vigorous and complex assessments of development proposals, and citizens have become better organized and more strident in their demands for environmental duality. In California Proposition 13 has added another solid argument against new community development; and planners now routinely consider the fiscal impacts of new development before granting approval. At the same time demographic,migratory,and employment trends point to continuing strong demand for housing in many metropolitan regions of the nation. These conflicting trends guarantee a continued escalation of housing prices and greater difficulty for young families buying their first homes. If high housing costs continue, businesses in many metropolitan areas will find it more difficult to remain com- petitive in national and international markets.Footloose firms unable to maintain competitiveness will migrate to low-cost areas;those that cannot will grow more slowly. The most sensible approach is to recast our notions about what good.land-use planning is. Development needs to occur at.higher densities,and housing needs to be better integrated with commercial and industrial project_;.lel uch of the future demand for housing could be met without the conversion of any unserviced, open lands, if the 732 SUBURBAN SQUEEZE density of new residential development were increased and declin- ing commercial and industrial areas recycled to residential use. While planning is very capable of stopping the conversion of open lands,it has not been effective in encouraging development in desir- able areas. Unless development and recycling can be facilitated in serviced areas, we are unlikely to solve our regional housing prob- lem. This may be accomplished several ways: First, the fiscal disin- centives of new residential=development must be eliminated. Sec- ond,the ability of"torpedo groups"to stop reasonable housing proj- ects must be curtailed through countervailing housing advocacy groups. Third, impediments to the conversion of older areas to high-density residential use, regardless of their earlier use, must be removed. Finally, citizens must be shown by way of concrete examples that higher density development is attractive and desirable both person- ally and for the community. Bringing about these changes is going to be difficult, and presents a major challenge to land-use planners in the 1980s. 733 "THE SUBURBAN SQUEEZE": A COMMENT .Robert W. Poole,J--. .This paper does a good job of describing the ways in which govem- mental tax and land-use policies have led to a growing housing shortage in the San Francisco Bay Area (and in much of the rest of California). Unfortunately, some of the author's proposed remedies would, if implemented, impose important new costs whose impact the author neglects to consider. Alternative remedies ought to he considered. Before addressing these issues, however, two additional points deserve comment. First of all, Dowall fails to point out an additional consequence of the restriction of housing supply and the resultant rise in housing prices. That consequence is a rapid growth in gov- ernment intervention into the housing market,in an attempt to make the restricted supply of housing more "affordable." Within the past three years many California cities—including San Francisco, Los Angeles, Berkeley, Santa Maria, and Beverly Hills-- have enacted some form of rent control. Counties,too,have enacted rent controls, ranging from comprehensive (Los Angeles County) to mobile-home-parks-only (Santa.Barbara County). A second type of intervention is the requirement that developers make available a fraction of the units in a development at below-market prices; this policy is known as"inclusionary zoning."Both of these policies serve to discourage investment in new housing,thereby further worsening the supply-demand imbalance. They also place the burden of sub- sidizing lower-priced housing on the shoulders of housing providers, rather than on the taxpayers generally. Yet another consequence of supply-reduction policies is an increased demand for government-produced or government subsidized hous- ing.State-required housing elements of city and county general plans Cato,Jolerned, Vol. 2, No. 3 (Winter 1982). Copyright V Cato Institute. All riirhts reserved. The nutnor is President of the Reason Foundation,Santa Harhan.,Calif.93101. 735 CATOJOURNAL set forth goals`,for providing-housing"`affordable" to various lower- ineome.groups::In 7m any,.case's,'the only:-way such..bousing.can`be produced is by-extensive. government subsidy. Thus,'local govern- menis find themselves:increasingly .be'ing drawn into .the role of housing'.:producers-a role.in which they have no particular exper- tise. A second.point in Dowall's.anilysis deserves comment.At various places the..paper..criticizes the growth of outlying suburbs.Although ecrying the.:.transportation congestion caused by the development ofhousing iri�oilol.ing suburbs;-Dowall also decries whatwould seem to be a positive development:fhe development of increased employ- ment opportunities within those suburbs, so that many of their resi- dents could avoid the long commutes.This naturally occurring devel- opment would reduce'both traffic congestion and air pollution in the entire region. By reducing :the .demand.for commercial/industrial uses in the older urban centers,it would also tend to make;some of the land in those centers more attractive for housing development— precisely the.result Dowidl wants to occur. So it is difficult to under- stand his characterization.of.this process as threatening "adverse consequences" for the older urban centers. Of greatest concern are.Dowall's proposed solutions to the "pris- oner's dilemma" situation in which cities end up with insufficient housing 'by focusing their policies on commercial and industrial development. Dowall suggests as remedies :such measures as.state aid to cities in proportion to the extent of housing construction, state financing of infrastructure and selected services (such as education), tax base sharing on a regional basis, and new service districts in developing areas funded by revenue boards. All but the last of these policies would increase centralization of government and reduce government accountability and responsiveness to local citizens. Dowall's concern is with the"fiscal dilemma caused by proposition 13. The limitation cif property tax revenue to one percent of market value frequently results in new residential construction costing more in terms of the public services it requires than the property tax revenue it generates under the one percent limit. (Commercial and industrial property generally requires less- services and generates greater revenues and is consequently preferred.) An alternative approach is to rethink the way in which public services are financed, reducing or eliminating property tax funding in favor of user tees.'Many California cities and counties have increased their reliance on user fees since enactment of Proposition 13 in 1978. 'Sec Robert W.Poole,Jr.,Cutting Flack City Hall(New York: Univorse Books, 1080). 736 COMMENT ON DOWALL Park:and.;reereation,.;services..:and:..garbage.:collection:.:are .often:pro- vided on a fee.basis.Water.:and sewer.systems generally change fees, but often receive.a significant amount of.their revenue:from:property taxes. All of these:.services:could'.be:funded.entirely from.user fees. But.many:..other services.ean be:shifletl..atleast;.partly:--to.usei.fees. Fire protection fees,based on the calculated"'fire flow"required.by each property(approximately proportional to the fire risk it presents), have been developed in :Inglewood .and .several ..other .California cities.'(Such fees.provide a direct incentive for ib .property owner to.invest in fire .prevention—sprinklers, alarms, fire doors, .etc.— because such investments reduce the calculated`fire flow-and hence the size of the fee.) Private police patrol firms.charge fees propor- tional to the extent and nature of their patrol .activities; analogous public-.sector fees.are certainly conceivable. Many.paramedic firms charge fees,rather than being funded by.tax.:money• With the majority of local public services financed by means of user fees, the fiscal dilemma caused.by Proposition 13 becomes a non-issue. Public services become self-financing, whether the users are residential;commercial,or industrial properties.IVloreover,when users pay directly for public services, they pay them wherever they use them, regardless.of where they happen to live. Thus, the com- muters who currently live in low-tax suburbs but enjoy the benefits of the nearby .big city would have to start.paying directly to enjoy those benefits which are provided in the form of.public services. Dowall also suggests that housing advocacy groups be created to publicize and lobby for supply-increasing policies. Such measures as one-stop permit processing and higher residential densities can, indeed, lead to reductions in housing costs, as HUD studies have shown.Other desirable supply-side measures include removing con- trols on the use of mobile and manufactured housing and ending restrictions on the conversion of apartments to condominiums; con- dos generally offer lower-cost home ownership opportunities than single-family housing. Dowall also argues that cities should amend their zoning laws to "permit" housing to be built on what is now industrially zoned land. But in another place he suggests rezoning industrial land to residen- tial.'rhere, is an important difference between allowing a type of use and mandating that use. In particular, such rezoning as Dowall sug- gests would constitute "downzoning;" reducing not just the types of allowable uses .bunt the market value of the land itself. While legal opinion is still mixed on whether such downzoning constitutes a "taking" requiring compensation under the Fourth Amendment, such further encroachments on private property rights can only discourage 737 CATO JOURNAL investors and developers from doing business in those communities taking such steps, Finally, Dowall places great stock in the idea of state legislation to promote housing production. unfortunately, his California exam- ple—AB2853—appears to be doing very little toward that end. Despite the frequent repetition of words like"ensure"and "require,"the bill does nothing of the sort. In practice, what seems to be happening is that local planning departments are using AB2853 as a charter for expanded government intervention into local housing markets—more public housing, inclusionary zoning, increased land-use control. State legislation could lie helpful, but it would have to provide explicitly for deregulating housing production, rather than further increasing the intervention and regulation which have led to the housing short- age in the first place. 738 ( June 2004 i �fSl)91 DO AFFORDABLE DOUSING MANDATES WORK? EVIDENCE FROM LOS ANGELES COUNTY AND ORANGE COUNTY By Benjamin Powell, Ph.D and Edward Stri•ngham, Ph.D Project Director: Adrian T Moore. Ph?D 7,•r�?id} '��`1'j`5:i.m:ti. .:.`x?;:' _ I ! ..favi /,",m;^:.+ i,rv::,.L:i `y„a ;'yn-j,:„`:e.Y;i a•; a�(y. 'i:Y �v<:i.��„il.t:::'Serie'.:.:.. .:'x.�itii.'X�i:51:':;:i;'a:�u�'fx•:E:.�'',.,+_x...:.)ti•�.?�., �:ii✓* i rY:rx"::q... a>:N�'.-'t,:;.::h. ) 1"��:�^� .C{:C1.•'..��'}j.:` . r. _ `ealL..a ?K:wfggi�`I;a!' p>�4'..¢;,.:t. Y. Iry M NY lk Mg u:. 4 �ver.:. �'•"L,.,, r. 1 ;4i( Reason Public Policy Institute Ream division of the Los Angeles-based Reason Foundation, Reason ublic Policy Institute is a nonpartisan public policy think tank promoting choice, competition, and a dynamic market economy as the foundation for human dignity and progress. Reason produces rigorous, peer-reviewed research and directly engages the policy process, seek- ing strategiesthat.emphasize cooperation,flexibilitS;,local knowledge, and.results.'.Throughgractical and innovative approaches to complex problems; Reason°seeks to change`tle way:,people'tlznk`'about issues, and°promote policies that"allow and encourage individuals and volun- ..:.... ...::. to :; nstitution5:to flourish. ::...:.....:... Reason Foun ation Reason Foundation'smission is to:adv: a'free,'societ3�:by develgp ing,.applying;.:and promoting libertarian:princples;including;indi= vidual liberty, free markets, and the rule of law. We usejournalism and ... public policy research toinfluence°the franeworks:and:actionsof.poli- o cymakers,journalists,.and..opinion.leader.s. Reason Foundation is a tax-exempt research and education organza- tion-as defined under SIRS code.5o1(c)(3). Reasori Foundation is sup- ported byvoluntary contributions.from individuals foundations and corporations:'Tlie`views are:those of the author, notmecessarily those of Reason Foundation or is trustees. Copyright @.2004Reason Foundation. Photos used:in this publication are copyright © 1996 botodisc, Inc. All rights reserved. Policy Study No . 320 Do Affordable Housing Mandates Housing Work? Evidence fromLos .Angeles County and Orange County By Benjamin Powell, Ph.D. and Edward Stringham, Ph.D Project Director: Adrian T. Moore, Ph.D Executive Summary Califomia and many urban areas nationwide face a housing affordability crisis. New housing production has chronically failed to meet housing needs,causing housing prices to escalate. Faced with demands to"do something"about the housing affordability crisis,many local governments have turned to "inclusionary zoning"ordinances in which they mandate that developers sell a certain percentage of the homes they build at below-market prices to make them affordable for people with lower incomes. The number of cities with affordable housing mandates has grown rapidly,to about 10 percent of cities over 100,000 population as of the mid-90s,and many advocacy groups predict the trend will accelerate in the next five years. California was an early leader in the adoption of inclusionary zoning,and its use there has grown rapidly. Between 1990 and 2003,the number of California communities with inclusionary zoning more than tripled—from 29 to 107 communities—meaning about 20 percent of California communities now have inclusionary zoning. Inclusionary zoning attempts to deal with high housing costs by imposing price controls on a percentage of new homes. During the past 20 years,a number of publications have debated the merits of inclusionary zoning programs. Nevertheless, as a recent report observed,"These debates,though fierce,remain largely theoretical due to the lack of empirical research." Our recent report,Housing Supply and Affordability:Do Affordable Housing Mandates Work?,filled the empirical research void.We measured the actual performance of these ordinances in the San Francisco Bay Area. This study follows up on our previous study by examining data from communities in Los Angeles County and Orange County to evaluate the effects of inclusionary zoning and examine whether it is an effective public policy response to high housing prices. In Los Angeles and Orange Counties, 13 cities have an affordable housing mandate. These communities vary in size and density with different income levels and demographics,so they provide a good sample to tell us how inclusionary zoning is working in Southern California. These are our findings: Inclusionary Zoning Produces Few Units Since its inception,inclusionary zoning has resulted in few affordable units.The 13 Los Angeles•and Orange County cities with inclusionary zoning have produced only 6.379 affordable units,with 70 percent of those units being produced in Irvine.After passing an ordinance,the median city.produces less than eight affordable units per year.Inclusionary zoning cannot meet.the area's affordable housing needs. Inclusionary Zoning Has High Costs Inclusionary zoning imposes large burdens on the housing market.For example,if a home could be sold for $500,000 dollars but must be sold for$200,000,the revenue from the sale is$300,000 less. In half the Los Angeles County and Orange County jurisdictions this cost associated with selling each inclusionary unit exceeds$575,000.In current prices the cost of inclusionary zoning in the average jurisdiction is$298 million,bringing the total cost for all inclusionary units in Los Angeles and Orange County to date to $3.9 billion. Inclusionary Zoning Makes Market-priced Homes More Expensive Who bears the costs of inclusionary zoning?The effective tax of inclusionary zoning will be borne by some combination of market-rate homebuyers,landowners,and builders.How much of the burden is bome by market-rate buyers versus landowners and builders is determined by each group's relative responsiveness to price changes. We estimate that inclusionary zoning causes the price of new homes in the median city to increase by $33,000 to$66,000. In high market-rate cities such as San Juan Capistrano and Laguna Beach we estimate that inclusionary zoning adds more than$100,000 to the price of each new home. Inclusionary Zoning Restricts the Supply of New Homes Inclusionary zoning drives away builders,makes landowners supply less land for residential use;and leads to less housing for homebuyers—the very problem it was instituted to address. We find that new housing production drastically decreases the year after cities adopt inclusionary zoning. For all 13 cities average production of housing fell the year following the adoption of inclusionary zoning.in the eight cities with data for seven years prior and seven years following inclusionary zoning, 17.296 fewer homes were produced during the seven vears after the adoption of inclusionary zoning. In those cities 770 "affordable"units were produced. One must question whether 770 units are worth the cost in terms of 17•.296 fewer homes.By discouraging production of 17,296 homes in those eight cities,$11 billion worth of housing was essentially destroyed. Inclusionary Zoning Costs Government Revenue Price controls on new development lower assessed values,thereby costing state and local governments lost tax revenue each year.Because inclusionaryzoning.restricts resale values for a number of years;the loss in annual tax revenue can become substantial. The total present value of lost government revenue due to Los Angeles and Orange County inclusionary zoning ordinances is upwards of 5752 million. Price Controls Do Not Address the Cause of the Affordability Problem Price controls fail to get to the root of the affordable housing problem. Indeed,by causing fewer homes to be built they actually make things worse.The real problem is government restrictions on supply. Supply has not kept up with demand due to these artificial restrictions.One recent study found that 90 percent of the difference between physical construction costs and the market price of new homes can be attributed to land use regulation. F The solution is to allow more construction.When the supply of homes increases,existing homeowners often upgrade to the newly constructed homes.This frees up their prior homes for other families with lower income. Inclusionary zoning restricts this upgrade process by slowing or eliminating new construction. With fewer new homes available,middle-and upper-income families bid up the price of the existing stock of homes,thus making housing less affordable for everyone. Conclusion Inclusionary zoning has failed to produce a significant number of affordable homes due to the incentives created by the price controls. Even the few inclusionary zoning units produced have cost builders, homeowners, and governments greatly. By restricting the supply of new homes and driving up the price of both newly constructed market-rate homes and the existing stock of homes,inclusionary zoning makes housing less affordable. Inclusionary zoning ordinances will continue to make housing less affordable by restricting the supply of new homes. If more affordable housing is the goal,governments should pursue policies that encourage the production of new housing. Ending the price controls of inclusionary zoning would be a good start. Policy Study No . 3 2 0 Table of Contents. Introduction................................................................................................................1 The Housing Market and Inclusionary Zoning in Los Angeles and Orange Counties .....3 Costs Associated with Below-Market Units ..................................................................6 A. Estimating the Effects of Price Controls by City...................................................................................9 B. Who Bears the Burden of Inclusionary Zoning?................................................................................11 C.The Effect of Price Controls on Housing Construction......................................................................15 The Fiscal Cost of Price Controls to State and Local Government............................... 18 Conclusion................................................................................................................21 Aboutthe Authors.....................................................................................................22 Related Reason�!Foundation Studies...........................................................................23 Endnotes............: ::: :................................................................................................24 DO AFFORDABLE HOUSING MANDATES WORK? ( 1 Part I Introduction he number of cities with affordable housing mandates has grown rapidly,to about 10 percent of cities over 100,000 population as of the mid-90s,and many advocacy groups predict the trend will accelerate in the next five years.' :California was an early leader in the adoption of inclusionary zoning, and its use there has grown rapidly. Between 1990 and 2003,the number of California communities with inclusionary zoning more than tripled—from 29 to 107 communities—meaning about 20 percent of California communities now have inclusionary zoning.Z Thirteen cities in Los An and Orange Counties have inclusionary zoning. The median price of new housing is$450,000 in Los Angeles County and S660,000 in Orange County.} Such high prices affect all but the wealthiest families' chances of buying a new home.Of metropolitan areas with more than one million residents,the Los Angeles-Long Beach Metropolitan Area and the Orange County Metropolitan Area respectively rank five and six as the least affordable areas in the nation. Table 1: Least Affordable Metropolitan Areas in the Nation Metro Area Least Affordable Share of Homes Affordable .i .Family Income Metropolitan Areas for Median Incomes San Francisco, CA PMSA' 1 9.2% $86,100 San Josh,CA PMSA 2 20.1% $96,000 San Diego,CA MSA 3 21.6% $60,100 Oakland,CA PMSA j 4 23.9% $74,500 Los Angeles-Long Beach, CA PMSA i 5 34.4% $55,100 Orange County,CA PMSA 6 37.7% $75,600 Sacramento,CA PMSA 7 43.7% $57,300 Portland-Vancouver, OR-WA PMSA 8 46.6% $57,200 Boston,MA-NH PMSA 9 48.2% $74,200 Riverside-San Bernardino, CA PMSA 10 49.6% $50,300 New York,NY PMSA 11 49.9% $62,800 Miami,FL PMSA 12 58.1% $48,200 Denver,CO PMSA 13 59.6% $69,900 Bergen-Passaic,NJ PMSA 14 61.5% $78,900 Newark,NJ PMSA I 15 61.1% $78,700 Source:Data are from the "Housing Opportunity Index:First Quarter 2002"(Washington,D.C.:National Association of Homebuilders), "PMSA and MSA are census designations meaning,respectively,Primary Municipal Statistical Area and Municipal Statistical Area. Faced with demands to"do something"about the region's housing affordability crisis,many local governments have turned to inclusionary zoning ordinances. Inclusionary zoning is a name for artificially 2 I Reason Public Policy Institute lowering the price, and therefore the value,on a percentage of new homes.Builders and subsequent owners are forced to sell the homes so that they are"affordable"to specific income levels. The price controls are set using different formulas so that the"inclusionary"units will be affordable to either "Very Low,""Low."or"Moderate"income households, or some combination thereof."Very Low"income is most often classified as up to 50 percent of county median income,"Low"as 50-80 percent of median,and "Moderate"as 80-120 percent of median.The percentage of units targeted as inclusionary units varies by jurisdiction,ranging from 5 to 25 percent of the new homes constructed in a project.Typically,the inclusionary units must be constructed within the project and be of the same.size.and.quality as the market- rate units. Some jurisdictions exempt small developments while others require builders to pay an in-lieu fee for developments of 10 homes or fewer to get out from under the price controls. Still others allow in-lieu fees for projects of all sizes. Ostensibly,some jurisdictions also offer incentives for compliance. These can take the form of"density bonuses"(giving builders the option to increase the density of their developments instead of making more of the units affordable),fast-track permitting(speeding up the process of issuing permits for new development),fee waivers,or exemptions from growth controls. In a few voluntary inclusionary programs,incentives are offered in exchange fora builder committing to sell at the price- controlled rates. But most inclusionary zoning programs.are mandatory,requiring all builders to participate. The proliferation of inclusionary zoning raises important public policy questions: ■ Is it effective---does inclusionary zoning lead to a substantial increase in affordable housing production? ■ Is it efficient—how do inclusionary zoning's costs compare to its benefits? ■ Is it equitable—does inclusionary zoning.fairly apportion the cost of providing affordable housing? Until recently these questions had not been adequately addressed.During the past 20 years a number of publications debated the merits of inclusionary zoning programs. Nevertheless,as the 2003 report Inclusionary Housing in,California:..30.Years of lnnovation:.observed,"These debates,though fierce.remain largely theoretical due to the lack of empirical iesearch.s4 Without]mowing the economic and other real- world consequences of inclusionary zoning,policymakers have difficulty assessing the merits or faults of inclusionary zoning. Our recent report,Housing Supply and Af ordabilirv:Do Afjiordable Housing Mandates Work?,filled the empirical research void.5 We measured the actual performance of these ordinances in the San Francisco Bay Area. We found that the San Francisco Bay Area inclusionary ordinances produced few"affordable"units, drove up the price of market-rate homes,and dramatically decreased the supply of new construction. Paradoxically,in the Bay Area,"affordable"housing mandates actually made most housing more expensive. The track record of affordable housing mandates in the Bay Area is consistent with the predictions of economic theory. Inclusionary zoning ordinances act like a tax on new development. Taxes decrease the supply of new housing and increase prices of the few homes that are built. This basic economic model should apply in other regions as well.b This study follows up our prior one to see if the empirical record of inclusionary zoning is consistent with economic theory in another region of California. We use data from communities in Los Angeles County and Orange County to evaluate the effects of inclusionan,zoning and examine whether it is an effective public policy in Southern California. We include in our analysis all the cities in these counties with inclusionary ordinances. Included are:Agoura Hills,Brea,Huntington Beach,Irvin-...Laguna Beach,Long Beach, Monrovia,Pasadena,Rancho Palos Verdes, San Clemente,San Juan Capistrano,Santa Monica and West Hollywood. These communities have various sizes and densities with different income levels and demographics,so they provide a good sample to measure the effects of inclusionary zoning in Southern California. Do AFFORDABLE HOUSING MANDATES WORK? I 3 Part 2 The lis I�larket .and Inclusionary g y Zoning in :Los Angeles and Orange Counties Anumber of studies document high housing prices and the affordability crisis in California.'Offering a temperate climate,cultural and natural resources,and job growth,Los Angeles County and Orange County have become increasingly desirable places to live. The percentage of homes affordable to a family eaming median income is only 34.4 percent for Los Angeles-Long Beach Metro and 37.7 percent for Orange Metro.8 Families earning less than median income have even fewer homes available in their price range. In response to the affordable housing crisis, 13 local governments in Los Angeles and Orange County have adopted inclusionary zoning requirements(Figure 1)and remaining cities now face loud calls from planners and advocacy groups to adopt inclusionary zoning as well. Figure 1: Number of Los Angeles County and Orange County Cities with Inclusionary Zoning 14 -Number of Los Angeles County and Orange County Cities with inclusionary Zoning 12 10 8 6 4 2 0 CD r` CO MO N M -0- U') Co r` CO M O N M � M M rn r- r- rr m m r` OO C'f O W m m m m m m m M rn M M M M rn M CM '7' o 0 Z! m rn rn rn rn 2! a, rn as rn rn rn a� rn rn rn rn rn rn rn rn o 0 4 I Reason Public Policy Institute Table 2 shows the jurisdictional requirements and the number of price-controlled units produced by city. Several communities could not report how many affordable units had been produced under the program, demonstrating a simple unwillingness by city officials to keep track of how effective the policy,is in spite of its costs. Our calculations of averages and costs exclude these cities. Table 2: Southern California Cities with Inclusionary Zoning: City Year Percent of Target levels I Number of price- Average number of imposed new units VL=Very Low; controlled units price-controlled under..price L-Low; producedby units produced per controls M=Moderate program year since program inception Agoura Hills 1987 10 M 50 3.1 Brea 1993 10 VL,L,M 278 27.8 Huntington Beach 2001 1. 10 L 313 156.5 Irvine 1977 5 VL,L,M 4,469 171.9 Laguna.Beach 1985 25 VL,L,M 139 7.7 Long Beach j 1992 5 M Monrovia 199D 20 M 280 21.5 Pasadena 1991 15 L,M I 14 1.2 i Rancho Palos 1997 5 VL,L Verdes San Clemente 1980' I 4 I VL 627 27.3 - San Juan Capistrano I 1995 . 30 VL,L 196 24.5 Santa Monica 1985 10 VL,L. West Hollywood I 1986 20 L,M .13 0.8 Sources:California Coalition for Rural Housing and Non-Profit Housing Association of Northern California, Inclusionary Housing in California, (Sacramento,CA:California Coalition for Rural Housing),2003;.and Calavita and Grimes,"Inclusionary Zoning in California:The.Experience of Two Decades."Journal of the American Planning Association v 64 no.2,1998,p.152. Inclusionary Housing in California does not report any units for these cities. Advocates of inclusionary zoning herald price controls as the solution to the affordability crisis. They point to the inclusionary units produced and declare the program to be a success.While the program has been a boon to the few families who luck out on getting the artificially reduced homes,the ripple effect distortion in the market caused by inclusion zoning is overwhelming,costing far more. Obviously,a more thorough assessment of inclusionary zoning is necessary.From an overall production perspective,how effective has inclusionary zoning been?The numbers do not look good.Compared to the region's overall affordable housing needs for this period,inclusionary zoning clearly,has not made a significant contribution to solving the region's affordable housing crisis. For the 13 cities,the Southern California Association of Governments projects the current 7.5 year affordable housing need for very low,low,and moderate income households to be 12,460.9 But in the 27 years that inclusionary zoning has been impiemented in Los Angeles and Orange Counties, inclusionary zoning has resulted in the production of only 6,379 affordable units. Of those,4,469 were in Irvine,which built a number of the units to settle a lawsuit for not providing"affordable"housing.That averages to only 236 units per year,with 165 in irvine and 71 in all other cities.Controlling for the length of time each program has been in effect,the average jurisdiction with inclusionary zoning produces only 34 units each year since adoption of its inciusionary zoning requirement. Do AFFORDABLE HOUSING MANDATES WORK? I The disparity between the regional housing need and inclusionary zoning production is shown in Figure 2. In Figure 2,the front(red)columns represent the average yearly production of affordable housing reported by cities(only for years when cities had inclusionary zoning)multiplied times 7.5,and the back(green) columns represent the 7.5 year need for affordable housing in the cities with inclusionary zoning. The number of units expected from inclusionary zoning does not meet most cities'needs for affordable housing. Huntington Beach is the most notable exception. Figure 2: Housing Needs Versus'Expected Units Produced under Inclusionary Zoning 10"Affordable"units produced through inclusionary zoning.(Calculated for 7.5 years by multiplying average . units per year produced under inclusionary zoning times 7.5.) 07.5 year housing needs according to the Southern California Association of Governments"Regional Housing Needs Assessment." 6,000 5,000 4,000 1 rK 3,000 2,000 j Fj2.a 1,000 .,r c 'M AMP U y AMP CD CO AW :> m ami U p c c _a- y m W m i cc ca =0J d L CDQ O E m U C CD U _ O N U dco CC m c fO — � 2 � From an overall production standpoint,inclusionary zoning has not been effective. Some advocates of inclusionary zoning respond to this poor record by calling for more vigorous and numerous restrictions. Instead,jurisdictions need to fundamentally reexamine if price controls are an effective way of producing more affordable housing. Policymakers should analyze the actual consequences of inclusionary zoning and judge whether the poor results achieved by inclusionary zoning are caused by the very nature of these laws. Looking at the number of below-market units created by programs only begins to reveal inclusionary zoning's effect on affordability. Our findings suggest that inclusionary zoning actually leads to less housing and higher prices. 6 I Reason Public Policy Institute Part 4 costs Associated with Below-Market Units Supporters often promote inclusionary zoning as a costless way of providing affordable housing.Many highlight the number of units produced under inclusionary zoning and then claim the program to be a success.But the costs of these units and programs are often missed.For example,West Hollywood has had inclusionary zoning since 1986,and the program has led to 13 affordable units.The initial reaction might be to consider the program worthwhile simply because 13 units were built.But accurately judging the efficacy of a program requires looking at its costs.What were the costs of producing each of those units? We all agree that the goal is to help low-income households,but we must recognize that some ways are better than others. If two methods cost the same amount but one helps more,we should choose the one that yields greater benefits.Or,if two methods yield the same benefits but one costs less,we should support the one with lower costs. Even though many cities have adopted inclusionary zoning,to date no one has comprehensively estimated the program costs.Without looking at the costs of inclusionary zoning, one cannot determine if better ways to provide affordable housing exist. By definition,whenever..sellers must sell a unit at a government-set price,they cannot sell that unit at the market price.For example;for a home to be"affordable"..to a low-income household in West Hollywood,we estimate that the home must be sold for$147,000.If a new home could be sold for$588,000 but must be sold for$147,000,the revenue from the sale is$441,000 less.When someone forgoes one opportunity to take another, economists refer to this as the"opportunity cost."The opportunity cost of selling a"Low" priced unit for$147,000 is not selling the unit for$588.000.i.e.,$441,000. Keep in mind that this does not measure production costs.Rather,it represents the lost revenue per sale of price-controlled units. First,let us consider the cost associated with each inclusionary unit by city.We calculate the cost for each unit by subtracting the regulated price from the market price.10 Most inclusionary zoning ordinances mandate that homes be affordable to some combination of very low income,low income and moderate income households.Very low income is typically defined by up to 50 percent of median,low income is defined by up to.80 percent of median.and moderate income is defined by up to 120 percent of median. The California Department of Housing and Community Development provides income levels for four-person households (Figure 3)." DO AFFORDABLE HOUSING MANDATES WORK? I 7 Figure 3: 2003 Income Levels for Four-Person Households Defined by California Department of Housing and Community Development O Very Low Income El Low Income ■Moderate Income $100,000 $90,000 $80,000- :y $70,000 $60,000 $50,000 $40,000 $30,000 : $20,000 $10,000 $0 v os P�9 e roe pta�0 Inclusionary zoning sets price controls such that homes can be"affordable"at the specified income levels. Table 3 indicates sample price controls for homes to be"affordable"to the four-person households in the respective income groups.We assume homes will be financed with 0 percent down,a 30-year fixed-rate mortgage,and an interest rate of 7 percent.We assume 26 percent of income will pay mortgage payments and 4 percent of:income will pay for real estate taxes and other homeowner costs.This formula gives us how much a household in each income level could afford.We decided to use conservative assumptions so that we would not overestimate the costs of inclusionary zoning. Different jurisdictions use different formulas for calculating their price controls:actual price controls will differ.accordingly.To the extent that families can afford less than our calculations assume or that jurisdictions set price controls more stringently than we assume,the costs of inclusionary zoning will be significantly higher than our estimates. Table 3: Sample ' Groups County. Very Low Price Control Low Price Control Moderate Price Control Los:Angeles`County $91,837 146,875 $215,265 Orange County $123,101 '°$.1:84,001 $295,379 We can then compare the level of the price controls to the market price of homes.The more restrictive the price controls,the greater the cost for each unit.Figures 4,5,and 6 compare the median price of existing homes in each county to our sample price controls.The heights of lower(red)bars represent the price controls: "very low"in Figure 4,"low"in Figure 5,and"moderate"in Figure 6.The top of the upper(green) 8 I Reason Public Policy Institute bars represent the 2003 average market price of new homes by county.The difference between the market price and the price-controlled price(the height of the red bar)is the cost of providing the affordable unit. Figure 4: "Very Low"Price Controls Compared to Average Market Price by County ®"Very Low"price control 0 Cost Associated with selling"Very Low"unit $7WOOD;, i $6011; $400'.000- J ,,fir't` 1,YiV-� i_"cji.:4`F•I[{::^:.M1.,��':V'' •8 TZ''':'.�'��ti:::',:�2.i : ..nt4s�u`''r:�:�:d7", •a:i':,:i .Ji:,•.,..;n•,{,4t�(Rti %».p' .1�i'• i.y_.:,.:1'A"'%iA:'iri..:�xMjl.;s�`:i''riliY"5:i'it: !:: h..� :::'Y.YA•{¢�,.t�n+'c:. $300'000: ., . ',4a 76 , . rv+ii t. —,t. •5.51 .:8; %ti�a<'�i�'•.:.li:c]r ^.yE'•'4ii�iN-'r.'r.•-.?g`....,t.�s..:r . <.":is::iFi�-r•°'r4tJ'.f+ �;.';F' •:d:. x:.,fd,;yeti .J:t•''::";..:�.;� :1` eF $100,000 $0 Los Angeles County Orange County I Figure 5: "Low" Price Controls Compared to Average Market Price by County ®"Low"price control O Cost associated with selling"Low"unit $700,000 $600,000 $500,000 $400,000 •:�A?.^::� as.:-;•�t`i �Aii;'i:�.�:?!:i=•f.i.:::7,t..;r..,ty,,�4 $300,000 •:ai• :;';:. :;:::t:.' $200,000 J fl; YslYv,•;:�c��;r,�r;.i'x�t,�. p:!�sa"?; ::�.•.::tiai'; �t:)�s p^.Rxl: Lrli;`:-a`1;iL=jam^ $100,000 $0 Los Angeles County Orange County i DO AFFORDABLE HOUSING MP►NbATES WORK? I 9 Figure 6: "Moderate"Price Controls Compared to Average Market Price by County ®"Moderate"price control ID Cost associated with selling"Moderate"unit $700,000 $500,000 . m,�. ., t j " t.., $40000O �Fc=:r k'J:a<:':ire .;1, kgg'„i,'. �v^+.:ti 5. . ;,� gip; 5 li.�l'�•!y'lgpy;.�A}(,” lad.-3'�'a.n•.i.:, �,^' :.:�R.4nJ •+. .d',i"<:,j". V'Ja'J"'I3. �wV� '�:,ya::.`}, 4'-. '_. x, 5.�i1.,'..1• •`" $300,000 $200,000 j $100,000 II $o Los Angeles County Orange County Comparing the figures,the"moderate"price controls are not as restrictive as the`low"price controls and impose less of a cost.When price controls are at the market price we would not count them as costly.In reality price controls set near the market price also cause builders to lose revenue because the price controls come with other restrictions. Inclusionary zoning ordinances almost always impose restrictions on the resale price of below-market units. The reasoning seems straightforward: the subsidized units should remain affordable for future buyers,and the initial buyers should not be able to cash out on the windfall profits of acquiring a price-controlled unit.S'- These.affordability controls limit appreciation to some formula based on inflation,or they simply mandate that the home be"affordable"to the equivalent income groups calculated at the time of sale. Resale price controls'typically last 30 years or more and are renewed upon each sale. Because home ownership is a long- term commitment and affordability controls last a number of years,price-controlled homes are simply less valuable. A. Estimating the Effects of Price Controls by City By comparing the market price to the average level of the price controls in each city,we can estimate the average cost of each price-controlled unit and the total costs for each city. Each ordinance targets different income levels,so each city's price controls will vary. For example,if a cinJ in Orange County required that 15 percent of new units be"affordable"and its only target income group was"very low,"we assumed that 15 percent of units needed to be sold for S123,101 each.Or,if a city in Orange County required that 15 percent of new units be"affordable"and its only target income group was "low, we assumed that 15 percent of units needed to be sold for 5184,001. 10 I Reason Public Policy Institute For cities with more than one target.income group,for the sake of simplicity we took the average level of the price controls.For example,if a city in Orange County required that 15 percent of new units be"affordable" and the target income groups were"very low,"".low,"and"moderate,"we assumed that 5 percent of the units needed to be sold for$123,101 each,5 percent for$184,001 each,and 5 percent for$295,379 each. Taking,the average of those figures,we arrive at our.estimate,.that 15 percent of units need to be sold for $200,827 each.Because many towns targeting multiple income groups do not target each income group equally;.our.estimates will not be 100 percent accurate.If a city targeting multiple income groups requires more"very:low".units,our estimates of the costs of zoning will be on the low side.On the other hand,if a city.requiresmore`moderate"units.our estimates will be on the high side.In addition,when a jurisdiction required:,101o..15::percent of units to be affordable,we always chose the lower bound and ignored the upper bound'in ordennot.to overestimate the costs of inclusion ary.zorimg.13 Once we arrived at the average price control for.each city,we then subtracted it from the market price for each'.city..,',4 For example.we estimate that a new home in West:Hollywood could be sold for $588,530. West Hollywoodtrequ res that 10 percent of homes be.priced at"`.lo,%V.:and 10 percent at"moderate,"which we estiriiate,at`$1.4.6,875 and$215,265,an average of.$1.81. 070 ref home. That means 20 percent of homes wouldneed:to:be:sold for$407,460 less than market:price'.:In.;other words,the cost of providing each inclusionary...uiiifin West Hollywood is$407,460:Inliigh=priced iunsdictions these losses can be quite high. Figure.7:shows:.tlie average cost associated with.selling:a.price-controlled unit based on the standards in triose cities and the market prices.In cities with more restrictive price controls and higher land values,the cost is higher. In the median city the cost of providing each inclusionary unit is$577,726. I Figure 7:Average Cost Associated with Selling Each Price-Controlled Unit $1,600,000 $1,400,000 I $1,200,000 — $1,000,000 I $800,000 — $600,000 $400,000 $200,000 $0 m co a o a) v, a) m to — U ^ U a7 _ U a7 D D a) a1 as Z IL cc O D U ca N < ^ m a 7 �_ U - DO AFFORDABLE HOUSING MANDATES WORK? ill The cost of each inclusionary.unit is large.Next let us look at the cost per unit times the number produced in each city(Figure 8)."This gives a measure of the aggregate.cost of inclusionary units by city for those that report creating affordable homes under inclusionary zoning. .Figure 8:Average Cost Associated with.5elling Each Price-Controlled Unit Times the Number of Units Pasadena, $5,851,457 San Clemente, $51914911982 r A ou a Hills 5 . = $29,678,632 �1 Monrovia $1,000,000,000 $79,989"8 14 Brea,$124,456,235 West Hollywood, $5,296,977 Huntington Beach, San Juan Capistrano, Laguna Beach, $180,828,261 i $110,050,263 $204,114,750 According to our estimates,the costs associated with producing inclusionary units in Los Angeles County and Orange County have been S3.8 billion.Combining data from Los Angeles and Orange Counties with data from cities in the Bay Area that just adopted their programs,we can get a more accurate estimate of the costs of inclusionary zoning. We find that the median city's cost of below-market units was more than$79 million. B. Who Bears the Burden of inclusionary Zoning? The costs of inclusionary zoning are largely hidden.None of the costs imposed on the housing market shows up on any city's annual budget,but they still exist.Who ends up paying for that$3.8 billion for below- .market rate homes?One can debate exactly who bears the costs,but they are necessarily bome by someone. Because they are imposed on the new housing market—and not paid for by government—the costs will be borne by some combination of developers,new homebuyers,and landowners. Exactly who shoulders more of the burden depends on market conditions and supply and demand. All theory and evidence suggest that the costs of inciusionary zoning,effectively a tax,will not be borne by builders but by new homebuyers and landowners."Construction is a competitive industry with relatively free entry. Local market conditions will determine exactly how the burden is split.If buyers are more sensitive than sellers.to changes in price,then landowners will bear most of the tax.This happens when more 12 I Reason Public Policy Institute buyers.have many.options,such as living in similar or nearby areas.If sellers are more sensitive than buyers to changes in price,then new homebuyers will bear most of the tax.This happens when landowners have more options,such as being able to devote their land to commercial,industrial,or other endeavors. If profits are abnormally high,other builders will enter the market and undercut prices,thus bringing profits down. Conversely,if profits are abnormally low it will drive would-be builders to invest in other endeavors. When a tax in the form of inclusionary zoning is placed on builders,it decreases the number of profitable projects that they want to undertake in that jurisdiction. Builders will vote with their feet and undertake fewer projects in jurisdictions with price controls and more in neighboring jurisdictions without price controls. The quantity of housing produced will decrease where there are price controls,but increase in other places where there are not price controls,pushing some homebuyers away from their first choice of locations,and fondevelopers profit rates at the margin will remain the same. Price controls may not stop all development,but new construction will decrease.In order for development in a price-controlled city to be profitable enough to attract builders,one of two things has to happen. Either market-rate home prices must increase,or land prices must decrease to compensate the builder for his losses due to price controls.:Even with price controls on a portion of development,builders can still earn the normal rate of return if other.home.price.s.increase or land prices decrease.The likely result will be some combination of the two. . Both effects lead to a decrease in the quantity of new housing as market-rate buyers will be able to afford less housing and/or laridowners will supply less land for residential development due to low market prices. Raising home prices for other new.homebuyers creates a paradox because the alleged goal of inclusionary zoning is to make housing more affordable,not less.Decreasing land prices also decreases the quantity of new housing because it discourages landowners from providing their land for residential projects.Instead, more land will be put to uses in which the final product is not subject to price controls. Thus,the restriction on the supply of land restricts the supply of new homes. Advocates of inclusionary zoning tend to assume that the below-market rate units are subsidized out of builder profits,but economics predicts that builders are actually least likely to bear the burden. In the very short run,if builders own the land when the ordinance was passed,they would bear part of the burden. But in the long run,builders are most able to avoid the tax because they can simply move their construction to more profitable locations. The land cannot move,and buyers are often attached to living in a particular locale. Landowners and new homebuyers will end up paying for the subsidy on the price-controlled units. Inclusionary zoning effectively acts as a tax on the production of market=rate units because developers must sell a percentage of units at a loss to gain permits to sell market-rate units. If market prices went up by the exact amount of losses on the price-controlled units,buyers would bear the full burden of the tax. If market prices did not change at all,builders and landowners would bear the full burden of the tax. In most situations buyers and sellers each bear part of the tax burden. Regardless of who bears the burden,because some units are price-controlled and others are not,the losses from price-controlled units must be spread over some combination of buyers and sellers of the remaining units. We calculate the effective tax in each city by looking at the average cost associated with each inclusionary unit and the number of market-priced units over which the cost will be spread.To do this we multipiv the cost of each inclusionary unit times the percentage mandated by each city and then divide by the percentage of market-rate homes.To illustrate,for San Juan Capistrano each price-controlled unit has an associated cost Do AFFORDABLE HOUSING MANDATES WORK? 113 of$561,480(Figure 7)and 30percent of units must be sold at those price controls(Table 2). The calculation would be[($561,480)X(0.30)]/(0.70)='$240,634.To make it more concrete,if a project had 10 units,three must be sold at a loss of$561,480. Spreading the loss over the remaining seven units.gives a tax of$240.634 per market-rate unit.Figure 9 shows the effective tax on new home purchases imposed by inclusionary zoning.Inclusionary zoning imposes sizeable taxes on each newly constructed home.The median city with inclusionary zoning is effectively imposing$65,952 of taxes on each market-rate home. I Figure 9: Effective Tax Imposed on New Market-Rate Units Caused by Inclusionary Zoning $600,000 $500,000 $400,000 $300,000 $200,000 I $100,000 $o . CD W N N Ib W IO O ^ U .- CD N U > D G U d > �, m 'O d O d O (O f0 .. ] m m D N T C m ca G CL O ✓: W G 2 U CCr V co co J I I � ^ Cn Cities with higher land values and more restrictive price controls impose the highest effective tax on new homes.In Laguna Beach the equivalent tax on a market-rate home if a developer built and sold an affordable home is approaching $500,000 per newly constructed home. .After having calculated the amount of the tax,we can approximate who bears the brunt of the tax.The California Department of Housing and Community Development(HCD)takes the position that inclusionary- zoning:translates into higher prices for new homebuyers: HCD has consistently held this-position through both Republican and Democratic Administrations: Under most inclusionaryprograms,which typically include an in lieu fee[whereby the builder pays a fee to opt out of the inclusionary zone requirements]option,the cost of subsidizing low-income housing units is underwritten by the purchasers of market-rare units in the form of higher housing prices. This practice of cost shifting is particularly detrimental to a home buyer who marginaliv qualifies{or a mortgage yet earns too much to receive governmental assistance.' We have consistenthl...asked local,iurisdictions to analyze an inclusionary program as a potential governmental constraint. The reasoning for this is that most programs of this sort impose a fee or dedication requirement upon developers which is passed on to consumers of new market rate housing, raising the price of the market rate housing.t s 14 I Reason Public Policy Institute Others believe.the brunt of the tax will be borne by some.combination of builders and landowners.19 Figure 10 estimates price increases on new homes under the three scenarios.If the lower.bound is accurate(when buyers only pay 50 percent of the tax),the price of new homes is increased by$30,000 or more in 8 of 13 cities.If the upper bound is accurate(when buyers pay all of the tax),the price of new.homes is increased by $30,000 or more in 12 of the 13 Los Angeles County and Orange County cities with inclusionary zoning. Agoura Hills is the median city. Inclusionary zoning increases new home prices there by$32,976 in scenario one.$55.400 in scenario two,or$65,952 in scenario three.Although the goal is to produce more affordable housing,inclusionary zoning is actually producing the opposite effect.Inclusionary zoning translates into significantly higher prices for market-rate homebuyers. By creating price controls on a percentage of units,it taxes other new units and leads to higher housing prices. i Figure 10: Increases in Price of New Homes Caused by Inclusionary Zoning (Under Three Different Assumptions About Who Bears the Costs) D Assuming 50%of taxis borne by consumers Eel Assuming 84%of taxis borne by consumers El Assuming 1009/0 of tax is borne by consumers $500,000 i $450,000 $400,00G . $350,000 r E $300,000 $250, • 000- I :; $200,000 $150,000 , S50,000- $0 50,000 d 7 y U ccy -- m � O U C C 0 0 p to m a; Q, CM o cn p T ^ U i0 CM L1 d C/) CM c S J C M V DO AFFORDABLE HOUSING MANDATES WORN? 115 To the-extent that sellers.bear more.of the burden of taxation.the housing market also faces negative consequences. Because builders can move to jurisdictions.without inclusionary zoning;they will not bear the burden of the inclusionary zoning tax. Thus,landowners will bear most of the sellers'portion of the burden. Inclusionary zoning ordinances decrease the value for which landowners can sell undeveloped land to homebuilders. Because landowners receive lower prices;they will supply less land for residential 'development;and fewer homes.will be built. Governments already give landowners incentives to supply land.for commercial and industrial uses instead of residential ones. Since Proposition 13 limited increases in residential property taxes,governments began creating incentives for developing commercial real estate instead of residential because it generates more revenue. This has become known as the"fiscalization of land use." One study described how local governments responded to limits on property taxes this way: Local municipalities employ two primary methods for revenue generation:the imposition of heavier exaction fees for new development and the promotion of retail development in order to maximize sales tax revenues. This has had a direct,deleterious impact on new housing production.Rather than adopt land-use policies that advance or..incentivize new housing production,-developing new retail centers— such-as big box developments,entertainment complexes,and shopping destinations—emerged as the primary approach for increasing local government revenue. Consequently residential development(and other forms of development)suffered due to a lack of incentives or outright disincentives.20 Inclusionary zoning ordinances add yet another dismcentiveto„provide land for residential development. When part of the burden of taxation is borne by landowners;-iwethould expect inclusionary zoning to decrease the supply of new housing. C. T.he,Effect=.of Price Controls on Hous ng!EConstr:uction In addition to increasing prices,inclusionary zoning.leads'to a decrease in new housing.Economics clearly predicts.that the quantity of construction will be lower after the adoption of inclusionary zoning.But advocates of inclusionary zoning advance an alternate hypothesis that the quantity of construction will be the same(or higher)after the adoption of inclusionary zoning.By looking at the data of housing construction, we can get an idea of which hypothesis is correct. One test is to look at the amount of new construction in years prior and years following the adoption of an inclusionary zoning law.We examined Construction Industry Research Board yearly housing permit data for single and multifamily dwellings to compute average construction pre-and post-ordinance.For example,San Clemente adopted its ordinance in 1980 and Long Beach adopted its ordinance in 1992.We would thus compare San Clemente housing construction in 1979 and 1981,and Long Beach housing construction in 1991 and 1993.We also can comparehousing production for the seven years prior and the seven years following the ordinance,so for San Clemente we would compare housing production in 1973-1979 to housing production in 1981-1987 and for Long Beach we would compare housing production in 1984-1990 to housing production in 1992-1998.Because ordinances have been adopted throughout the past 26 years (Figure 1),economy-wide phenomena such as business cycles should not be biasing the data in either direction.For example,some cities adopted their ordinances during down times while others adopted their ordinances during up times. 161 Reason Public Policy Institute The.data indicate that inclusionary..zoning.does indeed lead to a decrease in.new.construction.For the one-, three-,five-and seven-year averages before and after the ordinances,the production of housing decreased after the adoption of inclusionary zoning. As price controls are in place for more time,the decrease in housing production adds up.Data on housing production seven years prior and seven years following the ordinance exist for 8 of the 13 cities. In those cities in the seven years prior to the adoption of inclusionary zoning 28,296 homes were produced,whereas in the seven years following the adoption of inclusionary zoning only 11,000 homes were produced. In those eight Los Angeles County and Orange County jurisdictions,inclusionary zoning appears to decrease housing by 17,296 units.That amounts to a decrease in housing production by 61 percent. If those 17,296 units would have been worth$650,000 per home,then the value of.housing not built because of inclusionary zoning is approximately 11 billion dollars.For those jurisdictions,in only seven years the average destruction of value per city is$1.4 billion. Figure 11: Total 7 Production of Housing 7 Years Prior•and 7 Years Following the Ordinance for Eight jurisdictions'Available Data i I 30,000 25,000 20,000 15,000 i10,000 5,000 0 Before After I I Recall that over 27 years inclusionary zoning in Los Angeles County and Orange County has only led to 6,379 affordable units,which amounts to 1,653 every seven years. In those eight jurisdictions only 1,534 units have been produced.Controlling for the length of time for each ordinance,those cities in total average 110 units per year since an ordinance has been adopted.Multiplying the yearly production rate by seven gives the expected number of"affordable"units over seven years,which amounts to 770 in all of those eight cities. Although those cities together had an estimated increase in 770"affordable"units the seven years following the adoption of inclusionary zoning,the total number of homes not built was 17,296(Figure 12). Is a policy that creates 770 "affordable"homes at the expense of discouraging 17,296 market-rate homes worth it? This is crucial because most entry into the housing market by lower-income families is by buying older homes freed up when middle-income families move into new homes.21 Reducing the overall production of DO AFFORDABLE HOUSING MANDATES WORK? I 17 housing both drives up prices and means that the people crowded out of the housing market are the lower- income would-be homeowners. Figure 12: Comparing the Increase in "Affordable" Units to the Overall Decrease in New Construction Associated with Inclusionary Zoning 5,000 770 0 ------- ------------------- ------- Inclusionary units produced (fog eight cities over seven years) -5,000 ---------------------------------------------- -10,000 ------10,000 --------------------------------------- i -15,000 -17,296 -20,000 ------------------------------- Decrease in overall new construction associated with inclusionary zoning -25,000 (for eight cities over seven years) Additional statistical work on inclusionary zoning is needed.The data indicate that the number of units pushed out of the market by inclusionary zoning is much larger than the number of"affordable"units built. Advocates of price controls must recognize that their programs lead to only a handful of below-market units coupled with a sharp decrease in market-rate homes.Because we cannot directly observe the thousands of homes never built,the costs ofthe program go largely unseen.Also unseen are those 17,296 families that cannot buy homes because inclusionary zoning prevented the construction of additional homes. is a program that destroys over$10 billion worth of housing and prevents thousands more families from getting a home than it places in an"affordable"unit worth the high costs? 181 Reason Public Policy Institute Part 5 The Fiscal Cost of Price Controls to State. .and Local GovernMent ot,;only;iio:piice controls lead to a decrease in the quantity of housing and an increase in prices for �ons,uners'but price controls also lead to decreased revenue for both state and local government. Iriclisionaryoning ordinances are often sold to policymakers as the proverbial free lunch,with proponents claiiiiingY"A:uast inclusionary program need not spend a public dime."Z'`Even if market-rate buyers and landouSnersend.up1.paying the price of the subsidy, so the argument goes,at least local governments need not spend;reventie::to•create affordable housing. Proponents write,"From a local agency standpoint,inclusionary zokiing::provides.affordable housing at no public cost'(emphasis added).23 The story,however,is not that simple..The.:advocates fail to take account that inclusionary zoning leads to direct losses in state and local goverrtii entrevenue. Inclusionary units demand and receive the same municipal services as market-rate homes. There is no evidence that providing municipal services to price-controlled homes is less costly than providing to market- priced homes.The cost of inclusionary zoning to governments comes from the fact that price-controlled homes cost the same to service but generate less revenue. Because the values of the homes are set at below- market rates,the assessed values are lower and so their property tax is lower. Thus;although governments may not spend"a public dime"to produce price-controlled homes,they take on an obligation of providing municipal services while receiving lower annual tax revenues. The cost to government from price-controlled units is the difference in the annual tax revenue that would have been generated had the same homes been assessed at market prices. If the real estate tax rate is 1 percent per year,a$700,000 dollar home generates$7,000 in government revenue,whereas a$200,000 home generates$2,000 in government revenue.To calculate the yearly tax revenue lost,we take the difference between current market price and the price-controlled price times l percent(for the property tax)for each unit. Multiplying times the number of units in each jurisdiction gives us a rough measure of the lost tax revenue per year.Biasing our numbers downward is the fact that we do not count the lost revenue from the homes never produced because of price controls.Biasing the numbers upward is the fact that not all market-rate homes are assessed at current prices due to Proposition 13.Also. many of the"affordable"units do not remain affordable if resale restrictions are absent.But the numbers illustrate the limit as homes are frequently resold and reassessed at current prices.They also approximate how much revenue would be gained if price-controlled units were reassessed at market rates.Figure 15 shows the yearly loss in combined state and local revenue due to price controls."to"lost state and local revenue combined become significant, as depicted in Figure 13. DO AFFORDABLE HOUSING MANDATES WORN? 119 We do not believe that the goal is to maximize tax revenue at the expense of low-income households,and we are.not advocating raising real estate taxes for low-income residents.But before considering inclusionary ordinances,governments must look:at their budgets and examine whether better ways of helping low-income households exist.. Figure 13:Yearly Loss in Combined State and Local Government Revenue Due to Price Controls(Assuming All.Units Are Assessed at Current Prices) Aaoura Hills, $296,786 Monrovia,$799,898 West`Rollywood, San Juan Capistrano "$5'2,970 $1,100,503 Brea,$1,244,562 Pasadena,'$59,5.15 Huntington Beach, .$1,808,283 Laguna Beach; $2,041,148 '.. .L7�r s �.i•Y- i;t'� U.9!..,. Y+ ,, ,N San Clemente, :< k4.. $5,194,920 Irvine,$26,162,480 S;USr` ..�tpri=:�i:<'ryy�,.;, 1i.`t ^!�..i.l'�';';.•--'j� ' ,.16 .. kid. Sy::•'.�j� a, -.; Government would be well advised to consider these yearly costs before adopting inclusionary zoning.It is important to note that the lost tax revenue occurs not just in one year but every year that the price controls are in existence.The total present value of lost government revenue is upwards of 5752 million(Figure 14).24 Although inclusionary zoning is often pitched to governments as a zero-cost method of creating affordable housing,the costs from lower assessed valuations are quite large. Both state and local governments bear some of the burden of lost tax revenue caused by inclusionary zoning. Property tax revenue goes to the state government,and a portion is rebated back to city and county govemments. The exact amount returned to each jurisdiction vanes significantly;so our above estimates measure the combined total of lost tax revenue without distinguishing the particular splits between local and state governments. Importantly this implies that although inclusionary zoning policies are usually debated and implemented at the city and county levels,state legislators should be concerned with these policies too. Each additional local inclusionary zoning ordinance adversely impacts the tax revenue not just of its own jurisdiction but also decreases the state's tax revenue. 201 Reason Public Policy Institute Figure 14: Present Value of Yearly Loss in State.and Local Government Revenue Due to Price Controls (Assuming'.a;Discount Rate of 3 Percent and that All Units Stay Assessed at Current Prices) I Agoura Hills, $3,543,016 San Juan Capistrano, I West Hollywood, $16,372,700 $1,671,031 -� I Monrovia, Pasadena, $21,416,815 $1;566,694 Brea,$24,393,971 Huntington Beach, v ., ;. $44,336,762 Laguna Beach ........ ..::.... � $48,666,401� ..—:-....:'....:.is�...... San Clementel .:.....:.... .. . .... . .......: ii:ir•- .....:: .:y........ .. ::::. �F ... ......: 1r I Irvine, $512,796,153 I Do AFFORDABLE HOUSING MANDATES WORK? 121 Part 8 Conclusion Inclusionary zoning should only be enacted if the goal is to make housing more expensive and decrease the quantity of new housing.Our findings in Los Angeles County and Orange County are consistent with the experience of the San Francisco Bay Area. Inclusionary zoning hurts homebuyers and will price out most .low-income families.Despite the good intentions of those who support inclusionary zoning;economics tell us that price controls on new housing will have the unintended consequence of reducing the quantity of new homes built.Rather than helping, inclusionary zoning will actually make the affordability problem worse. We have shown that inclusionary zoning imposes significant costs on the housing sector.Those costs are passed on to landowners and buyers of market-rate homes.Higher housing prices will result. Something should be done about the affordability crisis,but price controls are not the answer and may be part of the problem. Southem California cities will never be able to rely on inclusionary zoning to meet their housing needs.In fact,inclusionary zoning has led to a decrease in housing production.Rather than continuing to impose these policies,jurisdictions would do well to eliminate them. By ending price controls on new construction,builders would have an incentive to supply more housing. The worst possible solution to the affordability crisis is to pass policies that result in restricting the supply of housing.Inclusionary zoning is one such policy. 221 Reason Public Policy Institute About the Authors Benjamin Powell is an Assistant Professor of Economics at San Jose State University and an Adjunct Scholar with Reason Foundation. He received his Ph.D.from George Mason University in 2003. He has numerous publications in scholarly journals,policy papers,and the popular press. Edward Stringham is an Assistant Professor of Economics at San Jose State University and an Adjunct Scholar with Reason Foundation.He received his Ph.D. from George Mason University in 2002.He is winner of the Paper of the Year Award from the Association of Private Enterprise,Best Article Award from the Society for the Development of Austrian Economics,and Second Prize from the Independent Institute Garvey Essay Contest. Stringham serves on the Executive Committee of the Society for the Development of Austrian Economics and on the Executive Committee of the Association of Private Enterprise Education. Powell and Stringham's other recent work on housing inciudes a policy study,"Estimating the Effects of Price Controls in the Redevelopment of the Fort Ord Military Base"and testimony before the Board of the Fort Ord Reuse Authority.Powell and Stringham also have the entry on "Housing" in the forthcoming Concise Encyclopedia of Economics. Note: The authors appreciate research assistance from Ilkay Pulan,Daocheng Zhu,and a research grant from the California Building Industry Association. DO AFFORDABLE HOUSING MANDATES WORK? 123 Related Reason Foundation Stad':res. . Supply and Affordability:Do Affordable Housing Mandates Work?,by Benjamin Powell and Edward Stringham,Reason Foundation Policy Study No.318,April 2004,http://www.rppi.org/ps318.pdf Smart Growth in Action,Part 2: Case Studies in Housing Capacity and Development from lrentura County, California,by William Fulton,Susan Weaver,Geoffrey F.Segal,and Lily Okamura,Reason Foundation Policy Study No.311,May 2003,http://www.rppi.arg/ps3l I.pdf San Jdse Demonstrates the Limits of Urban Growth Boundaries and Urban Rail,by Randal O'Toole,Reason Foundation Policy Study No. 309,April 2003,http://www.rppi.org/ps309.pdf Smart Growth-in Action:Housing Capacity and Development in Ventura County,by William Fulton,Chris Williamson,Kathleen Mallory,and Jeff Jones,Reason Foundation Policy Study No.288,December 2001, http://www.rppi.org/ps288.pdf Smart Growth and Housing Affordability:Evidence from Statewide Planning Laws,by Sam Staley and Leonard C.Gilroy,Reason Foundation Policy Study No.287,December 2001, http://wvm,.rppi.org/ps287.pdf Urban-Growth Boundaries and Housing Affordability:Lessons from Portland,by Samuel Staley,Reason Foundation Policy Brief No. 11,October 1999,http://www.rppi.org/urbanipbl l.pdf Repairing the Ladder: Toward a New Housing Paradigm,by Howard Husock,Reason Foundation Policy Study No.207,July 1996,http://www.rppi.org/ps207.pdf 24 I Reason Public Policy Institute Endnotes ' See the statements of the housing advocacy coalition National Housing Conference at vvww.nhc.org 2 National Housing Conference,Inclusionary Zoning: The California Experience,Washington,D.C.: National Housing Conference,2004,http://www.nhc.orginheimages/Califomia°/"20IZ/CaIZ04.pdf. 3 Meyers Group"Meyers Group Summary Statistics"January-March 2004. ° California Coalition for Rural Housing and Non-Profit Housing Association of Northern California (2003).Inclusionary Housing in California:30 Years oflnnovation,p.3. 5 Powell and Stringham,Housing Supply and A ordabili i-v, 1-45. �• o P Y � n'�PP• �PP• 6 For an in depth explanation of the economics of inclusionary zoning see Housing Supply and Affordability:Do Affordable Housing Mandates Work? . This study also contains discussions about the longi term effects of affordability and the current debate on inclusionary zoning..Each of those sections is equally applicable to the Southern California market. ' Southern California Association of Governments State of the Region 2003 ,pp.35-42(Los Angeles: Southern California Association of Governments,2003) 6 National Association of Homebuilders,Housing Opportunity)Index:First Quarter (Washington, D.C.: National Association of Homebuilders,2002). 9 Calculated by taking the 7.5 year Southern California Association of Governments 1998-2005 Regional Housing Need Assessment for the 13 cities and dividing by 7.5. 10 We are not measuring what economists refer to as social costs,which would include the value of the lost consumer and producer surplus associated with inclusionary zoning.We are simply estimating the monetary amount that a seller must forgo when selling at the restricted price. Income categories are adjusted by household size. Compared to a four-member household; a household with five members can have an 8 percent greater income,a household with six members a 16 percent greater income,etc.Households with three members will have a 10 percent lower income,two members 20 percent lower and one member 30 percent lower according to the Department of Housing and Community Development.Because the four-member household is the baseline,we focus on four- member households throughout the paper. I` Barbara Kautz,"In Defense of Inclusionary Zoning: Successfully Creating Affordable Housing" University of San Francisco Law Reviex,,vol. 36,2002,p. 1014,gives an additional legal reason: "An inclusionary ordinance that does not limit the resale prices of for-sale units(creating `premium pricing' for the first buyer)may be vulnerable to attack for`not advancing a legitimate state interest. For example,inclusionary zoning in Santa Monica requires 10-20 percent of units be affordable,and its target groups are"Very Low"and"Low."in this case we would assume only 10 percent needed to affordable and the share was split 5 percent for"Very Low' and 5 percent for"Low."Because data for specific requirements of each city are currently unavailable,we decided to make simplifying assumptions and again err on the side of lower costs of inclusionary zoning. " We estimate market price by city by comparing 2004 data of the average price of new homes by county compiled by Meyers Group and 2000 Census median price of existing homes by city. Because new homes in Los Angeles County and Orange County typically sell for more than the 2000 median price of DO AFFORDABLE HOUSING MANDATES WORK? 125 4. ..yr.. omes;alandem . tY,.. 8' fficulttoa,ssemb7b ; Pnce;daa„b `h:'i .... 00. Census ctty,da4a based on:each county's pncOdtfferential fol new homes"Ort Los Angeles Couniy the ,. ..rF i. 4afa....... .... ...:... ...,....3<,.�: :...u._.._..c;,...,...ala.,:...,.... .; ..:41: ........ ......:....:.:...... raho.ofF:the:"nce.sof:new.homesito.the�, ncerof.extstm :homes.ts'2:2: 1 ,... ...:.,. <...P.....:...:....:.:.. _ and.tn Oraiige.,Counitythat,ratiois ]e;_the:2UQ0:.Census.medlan:..r,cerofexlshn =homes':in<tlie:ci ;ofsWestilIoll. :. oodwa ,,:.P.. 8,. s : multi y:tlatti ;2.:2:xoesfimate;that-a:.new:homewouldbe.:soldfor'closerto$588530. P Y " is` "Theft re looks at costs m tod' .s nces;The diver:enc6 tween current rice,:controls anil•the rice at''"which`. he.untts Curren fl°' could sell••eves us comparable numbers tn.today s dollars:It does not a.cu.ate,: e,ame„ rice,`fo 4h&;*diythe ric'''Controlled llmts Wereibuilfibnzalculate:•the: rice ,; .Donna.Jone.s;;:Homes:.Good;and:.Cheap,Low=income:,Buuers':Ge;:H.i'h=;, .uali}y';Homes""'SdntaCruz Sentinel Janua 10 20U.4'':"9:re orfs:gii one, ro.ect-liuilt-.,in 11998'that he7 `s.illustrates:our assumpttor s:When':homes:werei, ist:sold.govem-merit sbf;e. nces:at;around;$1:60:000'v;Toda' ' ' ::..:.'-:......:':.. ...:.:::::r:.::.::'.:..::.•.:'.:a::..M1•y:'.:'!:;'.:.::.:.:.. ;::;::11;i':..:.:::::::..:' .'::.:r.a..::.-:...:•til":i..::.':..,:,::..:-:.:..;..:..::.::::......:.:....... •. ,: 0`0 d"th goYernment sets ,e�r:pnces at' 28 „ QQO in ': a ."bulli'be worfhat;lea! tl'$BOO OOO:onttl e;:o en market.'..;Fonthe:purposes:;o :.pur;calculations yw.ew.ou'ld.:',subtract.tlieresfrioteil "rice ofs'�280'000`:from P . the marketpnce,of$800;000 to arrive at the$520;000 dtfference:'That pride coiitro7.'s,(and that difference .divergence between themarket pnceland�the`restricfed`price)is:nq longer imposed+�on the mitial.seller : . but is;now:imposed on1hb current•�ownerr;If l'.01�_omes wer.:e:san a.: io'eot;filae:e'uivalent.cost from the. >:. T. J 9 price:controls would b&-1 0ttmeslthat number - ;' 16 The.,requirement of substdtzedhousing has:the:sameceffect':;as a:dev.elopmenttax:.:The'develo ernakes P zero�economtc profit withNor without in'Ius3onary zontng•'so the tinplioit;tax tspassecl,oii:to:constuners r;(.,ousingtpnce.increases);;andilandowners(t'hepnce;.of.;a t 1Snd dec e3Ses .In:other'WorCdS"llouSin g consumers and landowner's a for inclusion zonm "RobertBitrchel aiid Catherine:Calle P Y $...: the ustonary' oiling:"'Pros and;Con's.;'..'.'nn<Th:e.Ga7i orriialnclusiona .;H izi :.Reaaler.;. .Sacramento: ... ,. ',. ; <.:.-Institute::for. ocal,Government:2003) . �'• - • ` ` �.. 44 ,Caltfom a Department t-f I3oustng:and'Commun"ity Development'letter::to:the.city.ofFairfield:July.16, 1:996 .:. ..:::,;fir.'•.;....::.': Caltfoma;Depai tment ofIousiiig;-and Community.Deve7opmenfletter`to:°the.city•of.Fairfield,Apri126, s.:.2001.,.; ... :.::::....:.;.::..,......:.' ::':;,::::;;...'= - 19 Laura Padilla,"Reflections on Inclusionary Housing and a Renewed Look at its Viability"Hofstra Lax Review,vol. 23, 1995,p.576. 2° Joel Kotkin and Thomas Tseng,Rewarding Ambition:Latinos,Housing, and the Future of California (Malibu, California:Pepperdine University School of Public Policy,2002). 21 Howard Hussock,Repairing The Ladder: Toward a New Housing Policy Paradigm, Reason Foundation Policy Study No.207(Los Angeles:Reason Foundation,July 1996). 22 Andrew G.Dieterich, "An Egalitarian Market: The Economics of Inclusionary Zoning Reclaimed" Fordham Urban Law Journal,vol.24(1996)p.41. 23 Several studies emphasize the assertion that there is no direct cost. See Kautz,"In Defense of Inclusionary Zoning,"p.5;Robert Burchel and Catherine Galley,"Inclusionary Zoning: Pros and Cons,” in The California Inclusionary Housing Reader(Sacramento:Institute for Local Government,2003), p.29; and Marc Smith,et.al.,"Inclusionary Housing Programs: Issues and Outcomes,"Real Estate Law Journal, Fall 1996. 24 We take into account the length that each city intends to impose price controls(30 years for the median city)and then calculate the present value,assuming a 3 percent discount rate. 3 til q� ;4,f , a •.- U'iyVl r � 4 y I �,�n�n ,,,.ryt ��i.•9 "'rt 1`q�5 k�� �¢ � �� ter? '..,1 �. - 1 'me+k"'�-.r I � r �i (� -0 S�V°����1���^k�r„��?y�T L� �e'��1 .� 'Ik{'a� �f s•+- .01 - TR i JKl'a N yJN Yl. F t 1 7,1--..f•t^•-'1.;.,+3 rc >r 't r'(% iyh'+'F'.R4,' r� _ .. I':'. 7t I 1 i Y Sj t 'F 1 1 ( 1' April 2004 ,,Reason ... HOUSING SUPPLY AN.D :AFFORDABILITY: . DO AFFORDABLE HOUSING MANDATES WORK? By Benjamin Powell, Ph.D and :Edward Stringham, Ph.D Project Director: Adrian T: Moor-e, :h . y. ��ti'7;.'st �.;��a�i+�(a-=tir j�R���7�A�.ti'sF'tf�., :;1 `•� ' liF.ry.':i ��M:J..{.} s 4ty'?��I.�Y;??;5.; r.r .fAfl• �x t.:iy. :•iSi'!'1���;' e'er j1jd' F''^• �,'li�" I 'a7`.'n .�'l�' '::4'.�, :i:,�::J�IihFT�iv.:�dJ•(�'i!� y f :.s: Q."• ` �y: :rsJ''11 .'_Cez�,:, _ >^•P,• "j� �;If. '-. ,r:lY 7..'.+.:..a:c...::¢"+CY.w.1�^•,0,3{''�'. '},l,i� '..i3: :.':'' ,�PI:. : i se i F 9M�- �. ,.,t� i �a�`i�?5"� iii?>•`.a�-:..i:��id�a.�� N '''�_ 1114, 34�'�� �",�`,✓9.f" A � :uy Biu 3 Sr. 1 pii 1 fN Reason Public Policy Institute Reaw Xv'slon of the Los Angeles-based Reason Foundation, Reason ublic Policy Institute is a nonpartisan public policy think tank promoting choice, competition, and a dynamic market economy as the foundation for human dignity and progress. Reason produces rigorous; peer-reviewed research and directly engages the policy process, seek- ing strategies.that;emphasize pooperation, flexib lity, local knowledge, and.-i+?esults Through practical and innovative approaches to complex :. . . problems;Reas.on seeksto.:change:tbe,waypeople:think:about issues, and promote policies that..allow andencourageiudividuals and volun- tary iris tutions;:to; ouris . Rea n -'F so ounaton Reason Foundation's mission`is to.advance. a`:free,society by develop= inapplying, 1 g, a pp Yln g,-an ;promoting Iibertarlan.,pr riepies;;including�incli- vidual liberty, free markets, and ferule lof law::We use ournalism;and public policy research to.influence the�:fra rieworks d;A0ons,i P b c akers journalists. and o inioh�le , ....... ':'': ,,:: Ym ,J p a ers.. , ... .. Reason Foundation is a tax-exempt,research and education organiza- tion:as defined under 1RS.code.5oi(()(3) > ason'Foundation Is-sup- ported by.voluntary:contributionsfrom`indi 'iduals;`:foundations, and .. corporations:°The views are tliose'of:the;author, not necessarilY`those of Reason Foundation;or.its trustees,. Copyright©2604 Reason Foundation. Photos usediin this publication are copyright @.1996 Photodisc;-Inc. All rights reserved. Policy Study No . 318 Housing Supply and Affordability: Do Affordable Housing Mandates Work? By Benjamin Powell, Ph.D. and Edward Stringham, Ph.D. Project Director: Adrian T. Moore, Ph.D Executive Summary California and many urban areas nationwide face a housing affordability crisis. New housing production has chronically failed to meet housing needs,causing housing prices to escalate. Faced with demands to"do something"about the housing affordability crisis,many local governments have turned to "inclusionary zoning"ordinances in which they mandate that developers sell a certain percentage of the homes they build at below-market prices to make them affordable for people with lower incomes. The number of cities with affordable housing mandates has grown rapidly,to about 10 percent of cities over 100,000 population as of the mid-90s,and many advocacy groups predict the trend will accelerate in the next five years.California was an early leader in the adoption of inclusionary zoning,and its use there has grown rapidly. Between 1990 and 2003,the number of California communities with inclusionary zoning more than tripled—from 29 to 107 communities—meaning about 20 percent of California communities now have inclusionary zoning. Inclusionary zoning attempts to deal with high housing costs by imposing price controls on a percentage of new homes. During the past 20 years,a number of publications have debated the merits of inclusionary zoning programs. Nevertheless,as a recent report observed,"These debates,though fierce,remain largely theoretical due to the lack of empirical research." This study attempts to fill the research void. In this paper we use data from communities in the Sar, Francisco Bay Area region to evaluate the effects of inclusionary zoning and examine whether it is an effective public policy response to high housing prices. We chose the Bay Area because inclusionary zoning is particularly prevalent there;today more than 50 jurisdictions in the region have inclusionary zoning. These communities have various sizes and densities with different income levels and demographics,so they provide a good sample to tell us how inclusionary zoning is probably working nationwide. These are our findings: Inclusionary Zoning Produces Few Units Since its inception,inclusionary zoning has resulted in few affordable units.The 50 Bay Area cities with inclusionary zoning have produced fewer than 7,000 affordable units. The average since 1973 is only 228 units per year.After passing an ordinance,the average city produces fewer than 15 affordable units per year. Inclusionary zoning cannot meet the area's affordable housing needs. At current rates,inclusionary zoning will only produce 4 percent of the Association of Bay Area Governments' estimated affordable.housing need. This means inclusionary zoning will require 100 years to meet the current five-year housing need. Inclusionan,Zoning Has High Costs Inclusionary zoning imposes large burdens on the housing market. For example,if a home could be sold for $500,000 dollars but must be sold for$200,000,the revenue from the sale is$300,000 less. In half the Bay Area jurisdictions this cost associated with selling each inclusionary unit exceeds$346,000. In one fourth of the jurisdictions the cost is greater than$500,000 per unit,and the cost of inclusionary zoning in the average jurisdiction is$45 million,bringing the total cost for all inclusionary units in the Bay Area to date to$2.2 billion. Inclusionary Zoning Makes Market-priced Homes More Expensive Who bears the costs of inclusionary zoning?The effective tax of inclusionary zoning will be borne by some combination of market-rate homebuyers,landowners,and builders.How much of the burden is borne by market-rate buyers versus landowners and builders is determined by each group's relative responsiveness to price changes. We estimate that inclusionary zoning causes the price of new homes in the median' city to increase by $22,000 to$44,000. In high market-rate cities such as Cupertino,Los Altos,Palo Alto.Portola Valley,and Tiburon we estimate that inclusionary zoning adds more than$100,000 to the price of each new home. Inclusionary Zoning Restricts the Supply of New Homes Inclusionary zoning drives away builders,makes landowners supply less land for residential use,and leads to less housing for homebuyers—the very problem it was instituted to address. In the 45 cities where data is available,we find that new housing production drastically decreases the year after cities adopt inclusionary zoning.The average city produced 214 units the year before inclusionary zoning but only 147 units the year after. Thus,new construction decreases by 31 percent the year following the adoption of inclusionary zoning. In the 33 cities with data for seven years prior and seven years following inclusionary zoning, 10,662 fewer homes were produced during the seven years after the adoption of inclusionary zoning. By artificially lowering the value of homes in those 33 cities,$6.5 billion worth of housing was essentially destroyed. Considering that over 30 years inclusionary zoning has only yielded 6,836 affordable units,one must question whether those units are worth the cost in terms of fewer and higher-priced homes. Inclusionary Zoning Coss Government Revenue Price controls on new development lower assessed values,thereby costing state and iocal..governments lost tax revenue each year.Because inclusionary zoning restricts resale values for a number of years,the loss in annual tax revenue can become substantial. The total present value of lost government revenue due to Bay Area inclusionary zoning ordinances is upwards of 5553 million. Price Controls Do Not Address the Cause of the Affordability Problem Price controls fail to get to the root of the affordable housing problem. Indeed by causing fewer homes to be built they actually make things worse.The real problem is government restrictions on supply. From 1990 through 2000,the Bay Area added nearly 550,000 jobs but only about 200,000 new homes. The California Department of Finance recommends 1.5 new jobs per new.home—the Bay Area produced only 55 percent of the suggested amount of housing. Supply has not kept up with demand due to artificial restrictions.One recent study found that 90 percent of the difference between physical construction costs and the market price of new homes can be attributed to land use regulation. The solution is to allow more construction.When the supply of homes increases, existing homeowners often upgrade to the newly constructed homes.This frees up their prior homes for other families with lower income. Inclusionary zoning restricts this upgrade process by slowing or eliminating new construction. With fewer new homes available,middle-and upper-income.families bid up the price of the existing stock of homes,thus making housing less affordable for everyone. Conclusion Inclusionary zoning has failed to produce a significant number of affordable homes due to the incentives created by the price controls. Even the few inclusionary zoning units produced have cost builders, homeowners, and governments greatly. By restricting the supply of new homes and driving up the price of both newly constructed market-rate homes and the existing stock of homes,inclusionary zoning makes housing less affordable. Inclusionary ordinances will continue to make housing less affordable by restricting the supply of new homes. If more affordable housing is the goal,governments should pursue policies that encourage the production of new housing. Ending the price controls of inclusionary zoning would be a good start. Policy Study No . 318 Table of Contents Introduction .............................................................................................................1 The Housing Market and Inclusionary Zoning in the Bay Area...................................3 Economics of inclusionary Zoning.............................................................................8 Costs Associated with Below-Market Units..............................................................10 A. Estimating the Effects of Price Controls by City..............................................................................14 B. Who:Bears the Burden of inclusionary Zoning?.............................................................................16 C. The Effect of Price Controls on Housing Construction...................................................................20 The Fiscal Cost of Price Controls to State and Local Government.............................22 The Effect of Long-Term Affordability Controls........................................................25 A. Incomes Change ..........................................................................................................................25 B. Incentives for Mobility and Improvements....................................................................................26 C. Inclusionary Zoning is Costly to Administer and Police..................................................................27 The Debate on Inclusionary Zoning........................................................................29 A. How Effective are Density Bonuses? .............................................................................................29 B. Inclusionary Zoning and Housing Costs.........................................................................................30 C. Socioeconomic Integration...........................................................................................................32 D. Increasing Supply is the Key to Housing Affordability....................................................................32 Conclusion ..............................................................................................:..............36 Aboutthe Authors ..................................................................................................37 Related Reason Foundation Studies ........................................................................37 Endnotes .................................................................................................................38 HOUSING SUPPLY AND AFFORDABILITY I 1 Part I Introduction The number of cities With affordable housing mandates has grown rapidly,to about 10 percent of cities over 100,000 population as of the mid-90s,and many advocacy groups predict the trend will accelerate in the next five years.2 California was an early leader in the adoption of inclusionary zoning, and its use there has grown rapidly. Between 1990 and 2003,the number of California communities with inclusionary zoning more than tripled—from 29 to 107 communities—meaning about 20 percent of California communities now have inclusionary zoning.3 A large concentration of cities with inclusionary zoning laws is in the San Francisco Bay Area,which also consistently rates as the country's least affordable region for housing.The median home price in the area is upwards of$560,000 and prices for new housing are even higher.' Such high prices affect all but the wealthiest families' chances of owning a home.Of metropolitan areas With more than one million residents, San Francisco,`San Jose and Oakland respectively rank 1,2,and 4 as the least affordable areas in the nation (Table 1). Table 1: Least I Affordable poI . Metro Area Least Affordable j Share of Homes Affordable Family Income Metropolitan Areas for Median Incomes San Francisco, CA PMSA* 1 9.2% $86,100 San Josh,CA PMSA 2 20.1% $96,000 San Diego,CA MSA 3 21.6% $60,100 Oakland,CA PMSA 4 23.9°6 $74,500 Los Angeles-Long Beach,CA PMSA 5 34.4% $55,100 :.Orange County,CA PMSA 6 37.7% $75,600 Sacramento, CA PMSA 7 43.7% $57,300 Portiand-Vancouver, OR-WA PMSA 8 46.6% $57,200 Boston,MA-NH PMSA 9 48.2% $74,200 Riverside-San Bernardino, CA PMSA I 10 49.6% $50,300 New York, NY PMSA 11 49.9% $62,800 Miami, FL PMSA 12 58.1% $48,200 Denver,CO PMSA 13 f 59.6% $69,900 Bergen-Passaic,NJ PMSA 14 61.5% N $78,900 Newark,NJ PMSA 15 61.1% $78,700 Source:Data are from the "Housing Opportunity Index: First Quarter 2002"(Washington,D.C.: National Association of Homebuilders), *PMSA and MSA are census designations meaning,respectively,Primary Municipal Statistical Area and Municipal Statistical Area. 2 I Reason Public Policy Institute Faced with demands to"do something"about the region's housing affordability crisis,many local governments in the Bay Area have turned to inclusionary zoning ordinances.In response to the crisis,the number of Bay Area jurisdictions with inclusionary zoning has proliferated from just a handful in the early 1970s to more than 50 in 2004. Inclusionary zoning is a name for artificially lowering the price, and therefore the value,on a percentage of new homes.Builders and subsequent owners are forced to sell the homes.so that they are"affordable'.'to specific income levels. The price controls are set using different formulas so that the"inclusionary"units will be affordable to either "Very Low,""Love,"or"Moderate"income households, or some combination thereof."Very Low"income is most often classified as up to 50 percent of county median income,"Low"as 50-80 percent of median,and "moderate"as 80-120 percent of median.The percent of units targeted as inclusionary units varies by jurisdiction,ranging from 5 to 25 percent of the new homes constructed in a project.Typically,the inclusionary units must be constructed within the project and be of the same size and quality as the market- rate units. Some jurisdictions exempt small developments while others require builders to pay an in-lieu fee for developments of 10 homes or fewer to get out from under the price controls. Still others allow in-lieu fees for projects of all sizes. Ostensibly,some iurisdictions also offer incentives for compliance. These can take the form of"density bonuses"(giving builders the option to increase the density of their developments in return for making more of the units affordable),fast-track permitting(speeding up the process of issuing permits for new development),fee waivers,or exemptions from growth controls. In a few voluntary inclusionary programs,incentives are offered in exchange for a builder committing to sell at the price- controlled rates.But most inclusionary zoning programs are mandatory,requiring all builders to participate. The proliferation.of.inclusionary.zoning raises:important public policy.questions: • Is it effective=does inclusionary zoning lead to a substantial increase in affordable housing production? • Is it efficient—how do inclusionary zoning's costs compare to its benefits? • Is it equitable—does inclusionary zoning fairly apportion the cost of providing affordable housing? These questions have not been adequately addressed.During the past 20 years a number of publications have debated the merits of inclusionary zoning programs. Nevertheless,as the 2003 report Inclusionary Housing in California:30 Years of Innovation observed,"These debates,though fierce,remain largely theoretical due to the lack of empirical research."5 Without knowing the economic and other real-world consequences of inclusionary zoning,policymakers have difficulty assessing the merits or faults of inclusionary zoning. This study attempts to fill the research void. In this paper we use data from communities in the San Francisco Bay Area region to evaluate the effects of inclusionary zoning and examine whether it is an effective public policy response to high housing prices. We chose the Bay Area because inclusionary zoning is particularly prevalent there; today more than 50 jurisdictions in the region have inclusionary zoning. We include in our analysis the 182 cities,towns, and Census-defined Dlacesb in the nine Bay Area counties: Alameda,Contra Costa,Marin,Napa, San Francisco,San Mateo, Santa Clara, Solano,and Sonoma. These communities are various sizes and densities with different income levels and demographics,so they provide a good sample to tell us how inclusionary zoning is probably working nationwide. HOUSING SUPPLY AND AFFORDABILrrY I 3 :i Part 2 . ......... ... 1"--h� : ousi�n Mairke and inclusionary toningthe in Bay Area Anumber of studies document high housing prices and the affordability crisis in the Bay Area.'Offering a temperate climate,cultural and natural resources,and job,growth,the Bay.Area has become an increasingly desirable place to live. From 1990 through 2000 the region added 547,590 jobs, an increase of 17 percent.$ The California Department of Finance recommends"1:5 jobs per new housing unit is a healthy jobs/housing balance,i9 which means more than 365.000 new homes should have been built. Yet the region added only 200,028 new homes-55 percent of the recommended need. Not surprisingly,housing prices have soared from their already high levels,as production has not kept pace with population and job growth. -- The percentage of homes affordable to a family earning median income is only 23.9 percent for Oakland Metro,only 20.1 percent for San Jose Metro,and an astonishingly low 9.2 percent for San Francisco Metro.10 Families earning less than median income have even fewer homes available in their price range. In response to the affordable housing crisis,a number of local governments in the Bay Area have adopted inclusionary zoning requirements(Figure 1).While Palo Alto blazed the trail with its ordinance in 1973; most governments have adopted them in the past 10 years. Remaining cities now face loud calls from planners and advocacy groups to adopt inclusionary zoning as well. As of 2004,more than 50 Bay Area cities have some form of inclusionary zoning." Figure 1: Number of Bay Area Cities With Inclusionary Zoning 50 45 40 3 35 m 30 25 N 20 CD 15 10 7 E 5 4 I Reason Public Policy Institute Table 2 shows the jurisdictional requirements and the number of price-controlled units produced by city.A number of communities could not report how many affordable units had been produced under the program; in most cases probably because the law was new or the community is very small and as yet there are no results.In some cases,though,it appears to be a simple unwillingness by city officials to keep track of how effective the policy is in spite of its costs. Our calculations of averages and costs exclude these cities. Table 2 Ba Area Cities With Inclusionary Zoning City ! Year Percent of Target levels Number of price- Average number of ' imposed -new.units I VL=Very.Low; controlled units, :.price-controlled under price L=Low; produced by units produced per controls M=Moderate program year since program inception Benicia I 2D00 , 10% VL,L Berkeley 1986 20% VL,L,M 75 4.4 Brentwood 2003 10% VL,L Calistoga I 1990 .20% L,M 78 6.0 Clayton i 1995 10% VL,L 84 10.5 Corte Madera 1989 10% M I 43 3.1 Cotati i 1985 1590 M Cupertino i 1983 15% VL,L,M 160 8.0 Danville 1999 10-15% M 70 17.5 Dublin I 1996 12.5% VL,L,M ! 59 8.4 I East.Palo Alto 1994 20% VL,L,M 115 12.8 Emeryville 1990 2090 M 463 35.6 Fairfax 1986 10-15% L,M Fremont 2002 15% VL,L,M Half Moon Bay 1996 20% j VL,L,M 12 1.7 Healdsburg 1993 15% L,M I * 0.0 Hercules 1997 1090 i M i * 0.0 Larkspur 1990 10-15% L, M 85 6.5 Livermore 1978 10% L 217 8.7 Los Altos 1990 10-20% ' VL,L 50 i 3.8 Los Gatos 1976 1090 M Menlo Park 1986 10-15% L,M 28 1.6 Mill Valley ! 1988 10-15% VL,L,M 319 21.3 Morgan Hill 1977 10% L,M I 302 11.6 Mountain View ; 1999 10% L,M Napa 1999 1 D% VL,L,M I 56 I 14.0 I Novato 1999 10-15% L 40 10.0 Palo Alto 1973 ' 15-20% 1 L,M 274 9.1 Petaluma 1984 15 L,M 1442 75.9 Pleasant Hill 19911 5-2590 VL,L 5 I 0.4 Pleasanton 1978 15-209% VL,L,M 300 12.0 Portola Valley 1991 1590 i L,M Richmond 2001. 10-170% VL,L,M Rio Vista 2002 1090 L Rohnert Park j 2002 I 1590 i VL,L,M HOU SING SUPPLY AND AFFORDABILITY I 5 Bay 1 .:Cit Year;:, :: Percent!bf..'.< :::,,; y Target levels ;Numbeirtf;:price= "'Average numb .,:,City imposed: ...new..units VL=Vey Low; controlled:.units ;.:price-controlled underprice..: L=.Low; produced by :.units produced per controls M=Moderate program year since program inception San Anselmo 1995 10% L,M San Carlos 1991 10% L,M I 40 3.3 San Francisco 1992 10-17% L, M 302 27.5 San Leandro 198D 10% L 312 13.6 San Mateo 1992 10% L,M 102 9.3 San Rafael I 1988 10% VL,L, M 611 40.7 Santa Clara 1992 10% M Santa Rosa 1892 15% VL,L 385 35.0 Sebastopol 1994 20% L 9 1.0 i Sonoma 1995 10% VL, M 11 1.4 S.San Francisco 2001 20% L,'M Sunnyvale 1980 10% L,M 749 32.6 Tiburon 1988 10% L;M I '19 1.3 Union City 2001 15% VL,L,M Yountville 1992 15% VL,L,M 19 1.7 �... Sources:California Coalition for Rural Housing and Non-Profit Housing Association of Northern California, Inclusionary Housing in California, (Sacramento,CA:California Coalition for Rural Housing),2003;.and Calavita and Grimes,"Inclusionary Zoning in California:The Experience of Two Decades."Journal of the American Planning Association v 64 no.2,1998,p. 152. *The California Coalition for Rural Housing and Non-Profit Housing Association of Northern California does not report any units for these cities. Advocates of inclusionary zoning herald price controls as the solution to the affordability crisis. They point to the inclusionary units produced and declare the program to be a success.While the program has been a boon to the few families who luck out on getting the artificially reduced homes,the ripple effect distortion in the market caused by inclusion zoning is overwhelming, costing far more. Obviously,a more thorough assessment of inclusionary zoning is necessary.From an overall production perspective,how effective has inclusionary zoning been?The numbers do not look good;in the 30-plus years.that inclusionary zoning has been implemented in the Bay Area,communities with inclusionary zoning report that it has resulted in the .production of only 6,836 affordable units. Compared to the region's overall affordable housing needs for this period,inclusionary zoning clearly has not made a significant contribution to solving the region's affordable housing crisis. Looking forward,the conclusion is the same. For the 5.5-year period over 2001-2006,the Association of Bay Area Governments (ABAG)projected the Bay Area's affordable housing need for very low,low,and moderate income households to be 133,195 units,or 24,217 per year.Over the past 30 years,however,inclusionary zoning throughout the entire Bay Area has produced an average of only 228 units per_year. Controlling for the length of time each program has been in effect,the average jurisdiction that reports creating some affordable housing with inclusionary zoning has produced only 14.7 units for each year since adoption of its inclusionary zoning requirement. 6 Reason Public Policy Institute spant ..,;between,the:;raegional:housinninclusionary,zon . oduction,:is shown in Figure 2.g; ee :an1` In Figure 2,thed rt .(red)columns represent the average yearly proiiuction of affordable housing reported by:cities(only for:vearswhen citieshiid inclusionary-zoning)multiplied times 5.5,and the:back(green) columns represent the five-yeanneed'for affordable housing in the cities with inclusionary zoning.The number of unifs expected from inclusionary zoning clearly pales in comparison to the regional need. This point is further illustrated by Figure 3,which shows the percentage of affordable units anticipated from inclusionary zoning based on the number of units cities report to have produced so far.The program would have to be 20 times more effective each year before it could be relied on to meet the area's five-year affordable housing needs.Put differently,if the program continues at its current pace,it will take 100 years for inclusionary zoning to meet current five-year housing needs. Figure 2: Housing Needs Versus Expected Units Produced Under Inclusionary Zoning ®"Affordable"units produced through inclusionary zoning.(Calculated for 5.5 years by multiplying average units per year produced under inclusionary zoning times 5.5.) a Five year housing needs according to the Association of Bay Area Governments"Regional Housing Needs Determination". 14,600 .•----- 12,000 ( � 1 D,000 I �'e rI 13,000- 6,000- 41 ,ODD 6,000 4.000 6r 2,000 >.x NI , 1 ..1 f i .I .I I .1'.,r „!'.1 1+. ? - ::�•v n. I :I�,-�;;ary���; .,•�� �t' [�y y��Y u;.;s�: d m�_=O p o r T— 1 1�I 1 I , _ F•Y �� a.{�b $:.a.'6:F� OdG�OOO•V }r_d�CO p_}NY.ty�r._m..+ �O•>� � C>O�pU p p p fO G1'O_ , I O }~�G�D_�ODU Nm OU d'D tOOtO�'pC'yOUY O> tO a�ppm?G'�CJ�O OL10 G1NU m cs-� mo o .pHwoa�° c ..2= E > or L V:V fn � N y li N�LLWmL¢=.ifl(�m�LC'.�Z.� C��y0 Cj��•U CJ p h DG VJ hGiF_ {O r,— W o Ny_ O N O N i I HOUSING SUPPLY AND AFFORDABILITY I 7 Figure 3: Fraction Of Affordable Housing Needs That We Can Expect to be Met Through Inclusionary Zoning. 4% it- M• ' k ISI ' 17"Affordable".units produced through inclusionary zoning.(Calculated for 5.5 years by multiplying average units per year produced under inclusionary zoning times 5.5) ®Shortfall of affordable units not produced through inclusionary zoning..(Data is only for cities with inclusionary zoning.) From an overall production standpoint,inclusionary zoning has not been effective. Some advocates of inclusionary zoning respond to this poor record by calling for more vigorous and numerous restrictions. Instead,Bay Area jurisdictions need to fundamentally reexamine if price controls are an effective way of producing more affordable housing. Policymakers should analyze the actual consequences of inclusionary zoning and judge whether the poor results achieved by inclusionary zoning are caused by the very nature of these laws. Looking at the number of below-market units created by programs only begins to reveal inclusionary zoning's effect on affordability. Our findings suggest that inclusionary zoning actually leads to less housing and higher prices. 8 4 Reason Public Policy institute Part 3 Economics o. :sr�i n4ar Zoning ............. :;: efore examining'.the evidence;oii inclusionary zon ng recognizing some basic economic principles will Bbe useful.Prices can::be>`detei mined ani-two" :w:ays'liy;relying on supply and demand(the market)or by using government price.;controls`Iic]usionary zoriing,opts for using price controls on a certain percentage of units.Economists widd. agree_' at. '64-.rgoveinment setsiprices below the market price,more housing will be demanded and less housing.iHl b6 supplied. '' .;':;;, :.. When the price lowers,buyers Willi ant ore of'an item,so as the price of housing drops,residents will demand more housing. The important question is whether more homes are supplied. If inclusionary zoning produces affordable homes that would not have been created,while not discouraging the creation of market- rate homes,then it would succeed in making housing more affordable. If,however,inclusionary zoning actually decreases the overall supply of houses and/or adds to the cost of housing,inclusionary zoning will !. raise prices on market-rate houses and price.middle-income buyers out of the market. The law of supply tells us that at lower prices fewer goods will be supplied. Builders decide to develop property based on expected profits and costs. Since inclusionary zoning restricts how much builders can charge for a portion of their development,expected profits go down while expected costs stay the same. We should expect builders to invest less in housing with inclusionary zoning than if government allowed prices to adjust to market conditions.13 In this way,restricting how much builders can charge will lead to less housing,not more. Analvzing the interaction between consumers and sellers shows how setting the price of housing below market creates a shortage where demand for housing exceeds supply (Figure 4). When housing demanded exceeds the supply,the available units must be rationed. In this case a lucky few get the units while everyone else is left out. Studies show that restricting housing prices to below-market rates creates a situation in which only a few people can find units at the low price,which of course burdens the majority of the consumers.14 An example of this shortage is the affordable housing complex Rich Sorro Commons near San Francisco's SBC Park. It had 2,700 applicants for only 100 units. A family had to be fortunate enough to be living in the city,apply,and then win a lottery to get one of the 100 units.15 The other 2,600 families, as well as low-income families who were unable to apply,did not benefit from programs that gave benefits to a select few. Thus,price-controlled units created by inclusionary zoning benefit a select few and create shortages for others. HOUSING SUPPLY AND AFFORDABILITY I 9 Figure 4: Supply and Demand of Housing with Affordability Controls PRICE OF Supply of Housing HOUSING Market Price .....\. ....................... Affordability Control / SHORTAGE \ Demand for Housing Supply with t Demand with O,UANTITY OF . price control I price control . HOUSING Uncontrolled supply=demand The initial shortage describedabove is only the beginning of the economic consequences of inclusionary zoning. Proponents of inclusionary zoning often point out that its popularity with local government comes from the fact that the local government does not have to pay to create the units. But if a portion of homes are sold for below-market prices,the subsidy to those buyers must come from somewhere.When government sets price controls within a free market,that free market must absorb the costs of the price control. In this case,a market where they cannot get fair value for the costs of building a house repels builders. Since some units are built to sell for below-market rates in order for the builder to secure permission to build the market- rate units,the builder takes a loss. In order to remain solvent,he must accordingly pass this loss on to the landowner that he bought the land from,resulting in devaluation of land,and to the market-rate homebuyer to whom he sells. In this way,inclusionary zoning acts on the Robin Hood principle,robbing in this case the middle class to support the poor, in much the same way a tax does. And like goods that are heavily taxed, such as cigarettes and gasoline,the market cost is driven up in response to the increased cost of production. In housing,this leads to less building,as builders take their business to more development-friendly jurisdictions, and in turn less homes are available to purchase,resulting in higher prices of the few homes on the market. The laws of economics clearly predict the consequences of inclusionary zoning. Restricting prices below market increases demand and decreases supply. When units must be sold for a loss,someone must pay for that difference.Landowners and market-rate buyers will ultimately pay the cost of the subsidized units. Unfortunately,this tax on new housing makes housing less affordable for everyone but the iucky few. Inclusionary zoning only exacerbates the affordability problem by increasing market prices and further discouraging supply. 101 Reason Public Policy Institute Part 4 Costs Associated with Below-Market Units Supporters often promote inclusionary zoning as a costless way of providing affordable housing. Many highlight the number of units produced under inclusionary zoning and then claim the program to be a success.But the costs of these units and programs are often missed.For example,the town of Tiburon has had inclusionaryzoning since 1988, and the program has led to 19 affordable units.The initial reaction might be to consider the program worthwhile simply because 19 units were built.But accurately judging the efficacy of a program requires looking at its costs.What were the costs of producing each of those units? We all agree that the goal is to help low-income households,but we must recognize that some ways are better than others.If two methods cost the same amount but one helps more,we should choose the one that yields greater benefits.Or,if two methods yield the same benefits but one costs less,we should support the. one with lower costs.Even though many cities have adopted inclusionary zoning,to date no one has comprehensively estimated the program costs.Without looking at the costs of inclusionary zoning,we cannot determine if better ways to provide affordable housing exist. By definition,whenever sellers must sell a unit at a government-set price,they cannot sell that unit at the market price.For example,for a home to be"affordable"to a low-income household in Tiburon,the home must be sold for less than $300.000. If a new home could be sold for$1.4 million but must be sold for $300,000,the revenue from the sale is$1.1 million less.In high-priced jurisdictions these losses can be quite. high.When someone forgoes one opportunity to take another,economists refer to this as the"opportunity cost."The opportunity cost of selling a unit for$300,000 is not selling the unit for$1.4 million., i.e.,$1.1 million.Keep in mind that this does not measure production costs.Rather,it represents the lost revenue per sale of price-controlled units. First,let us consider the cost associated with each inclusionary unit by city.We calculate the cost for each unit by subtracting the regulated price from the market price.16 Most inclusionary zoning ordinances mandate that homes be affordable to some combination of very low income,low income and moderate income households.Very low income is typically defined by un to 50 percent of median.low income is defined by up to 80 percent of median, and moderate income is defined by up to 120 percent of median."The California Department of Housing and Community Development provides income levels for four-person households (Figure 5),I8 HOUSING SUPPLY AND AFFORDABILITY 111 .Figure 5: 2003 Income Levels for.Fou r-Person Households..Defined.by California Department of Housing and.Community Development 0Very.LowIncome:8.1-ow Income'S'Moderate Income $140,000 $120,000 r $100,000 .:1 $80,000 ";: .. Y• $60,000 $40;000 , $20,000 � .v .$0 :F ... : Cn . U .. ..... C. ':.::Cn 'm CION N Inclusionary zoning sets price controls such that homes can be"affordable"at the specified income levels. Table 3 indicates sample price controls for homes to be"affordable"to the four-person households in the respective income groups.We assume homes will be financed with 0 percent down,a 30-year fixed-rate mortgage,and an interest rate of 7 percent.We assume 26 percent of income will pay mortgage payments and 4 percent of income will pay for real estate taxes and other homeowner costs.This formula gives us how much a household in each income level could afford.We decided to use conservative assumptions so that we would not overestimate the costs of inclusionary zoning.Different jurisdictions use different formulas for calculating their price controls;actual price controls will differ accordingly.To the extent that families can afford less than our calculations assume or that jurisdictions set price controls more stringently than we assume,the costs of inclusionary zoning will be significantly higher than our estimates. Table 3 Sample Price Controls for Homes to be"Affordable"to.Different Income Groups* County Very Low Price.Control Low Price Control Moderate Price Control Alameda .$130,429 $208,752 $299,287 Contra Costa $130,429 $208,752 $299,287 Marin $184,164 $294,728 $357,582 NapaI $110,401 $176,674. $264,930 San Francisco $184,164 $294,728 $357,582 San Mateo .$184,164 $294,728 $357,582 Santa Clara $171,789 $267,372 $412,294 Solano $110,401 $176,674 j $264,930 Sonoma I $116,426 $184,002 I $276,165 *HCD gives some counties the same income guidelines,soour sample price controls in those counties are the same. 12 I Reason Public Policy Institute We can then compare the level of the price controls to the market price.of homes.The more restrictive the price controls,the greater the cost for each.unit.Figures 6.7,and 8 compare the median price of existing homes in each county to our sample price controls.Tha heights of lower(red)bars represent the price controls: "very low"in Figure 6,"love,`in Figure`7,and"moderate"in Figure 8.The top of the upper(green) bars represent the 2003%average price of new homes by county.The difference between the market price and the price-controlled price(the height of the red bar)is the cost of providing the affordable unit. Figure 6"veryLow"Price Controls Compared to Average Market Price by County f '.'.Ve',' Low"price:.,control;.O C6st associated with selling"Very Low"unit . ..........:.: ;$800;000 :$700;000 -> $600000 $500,000 M1.�'1. �•. .f ..::.r. gip^:.' . 49.. $400,000 („!Ma: ,y `it:9;pi' 11:.1 ,y.:• w'�.3 �Sn i.:iS^s' '•::3 i:�?:r 'J7.�; �a5` iii';; jJ+ei?' :.:r; ��•!:. $300,000 $200,000 $0 . CU m ea o O m o Co y = c. m — E _�.. a4 O m m w m O m U z ru Z V C C N O Cn C O N O Q C En C L [J O W U Figure 7 "Low" Price Controls Compared to Average Market Price by County ®"Low"price control O Cost associated with selling"Low"unit $800,000 $700,000 $600,000 nry, $500,000 $400,000 $300,000 ,..:.:. .:.::. .. :•'i.iii. ::: '�...:.... ?0'p..; t $200,000 S100,000 $o . M m mo o r o m Cl— U d CD M m U z h 'G E5 O 4C Cn O 4 = y 4L m iy o N V) U HOUSING SUPPLY AND AFFORDABILITY `13 • Figure 8"Moderate" Price Controls Compared to Average Market Price by County ®"Moderate"price control O Cost associated with selling"Moderate".unit $800,000 $700,000 , <; $600,000 ';<. $500,000 $400,000 til' }hX'.- y^��� `•Fi. $300,000EEW $200,000 $100,000 $0 M c cc . c o m o m CL CO E M MM C c Z U c U O C '[O � C c L.L. m m O C N N U f0 Comparing the figures,the"moderate"price controls are not as restrictive as the"low"price controls and impose less of a cost.When price controls are at the market price we would not count them as costly. In reality price controls set near the market price also cause builders to lose revenue because the price controls come with other restrictions. Inclusionary zoning ordinances almost always impose restrictions on the resale price of below-market units. The reasoning seems straightforward:the subsidized units should remain affordable for future buyers,and the initial buyers should not be able to cash out'on the windfall profits of acquiring a price-controlled unit.19 These affordability controls limit appreciation to some formula based on inflation,or they simply mandate that the home be"affordable"to the equivalent income groups calculated at the time of sale. Resale price controls typically last 30 years or more and are renewed upon each sale. Because home ownership is a long- term commitment and affordability controls last a number of years,price-controlled homes are simply less valuable. Because buyers who purchase units with resale restrictions are not able to gain full equity appreciation in the home,they will be willing to pay less for those units and so`.`moderate"price-controlled homes often sell for less than the maximum allowable value.. Interviews with homebuilders illustrated this problem to us. One builder reported that in a development in Dublin,California,"Our inclusionary requirement obligates us to sell to moderate income buyers for up to$280,000 per unit,but because of all the resale restrictions and difficulties qualifying buyers. we actually have to sell the units for much less. Currently we are having difficulty selling the units at a price of 5255,000."20 Similarly, another builder reported that, "A 4-bedroom townhouse at moderate rate,up to 120 percent of median income,in Marin County can be priced at over 5480,000.Market for these homes is about$480,000 but we are unable to sell these homes[the restricted ones]for more than$380,000. The reason is the deed restriction that limits the buyer's ability to sell the home in the future."'' Because resale restrictions lower home values to consumers,they make builders sell at 141 Reason Public Policy Institute levels lower than the price controls when the restricted price is close to the market price.Our estimates do not include these costs. A. Estimating the Effects of Price Controls by City By comparing the market price to the average level of the price controls in each city,we can estimate the average cost of each price=controlled unit and the total'costs for each city.Each ordinance targets different income levels,so each cit y�s price controls will vary: or example,if a city in Alameda County required that 15 percent of new-units be"affordable" and'its onlv.target income group was"very low,"we assumed that 15 percent of units needed.to be sold for$130,429 each.Or,if a city in Alameda County required that 15 percent of newunits be",affordable.':'_and its only target income group was"low,"we assumed that 15 percent.of unitsineeded to:be sold for$208:752 each..::::. For cities with more than one target.'income_group,for the sakeiof simplicity we took the average level of the price controls:For example,if a city in Alameda County required that 15.,percent of new units be "affordable"and the target income groups were"very low,""low,"and"moderate,"we assumed that 5 percent of the units needed to be sold for$130,429 each, 5 percent for$208,752 each,and 5 percent for $299,287 each.Taking the average of those figures,we arrive at our estimate that 15 percent of units need to be sold for$212,823 each.Because many towns targeting multiple income groups do not target each income group equally,our estimates will not be 100 percent accurate. If a city targeting multiple income groups requires more"very low"units, our estimates of the costs of zoning will be on the low side. On the other hand,if a city requires more"moderate''units,our estimates will be on the high side.In addition,when a jurisdiction required 10 to 15 percent of units to be affordable,we always chose the lower bound and ignored the upper bound in order not to overestimate the costs of inclusionary zoning.Z' Once we arrived at the average price control for each city,we then subtracted it from the market price for each city.2'For example,we estimate that a new home in Tiburon could be sold for$1,426,997. Tiburon requires that 5 percent of homes be priced at"low"and 5 percent at"moderate,"which we conservatively estimate at$294,728 and$357,581,an average of$326,155 per home. That means 10 percent of homes would need to be sold for$1,100,842 less than market price. In other words,the cost of providing a single inclusionary unit in Tiburon is$1.1 million. In actuality,the cost for each price-controlled sale is much larger. Compared to our conservative assumptions(that diminish the costs of inclusionary zoning).Tiburon sets price controls for "affordability" much more strictly. Its ordinance assumes an interest rate of 9.5 percent,assumes 25 percent of income can be devoted to mortgage,and defines moderate as 80 percent of median rather than the standard 120 percent. According to Tiburon's ordinance,a"moderate"price-controlled home can be sold for no more than $109,800. That means the actual cost for each"moderate"price-controlled home in Tiburon is$1,317,197, not$1,100,842 per home as we estimate.Nevertheless,we want to err on the low side for our estimates of the costs of inclusionary zoning,so we present the data according to our conservative assumptions.Z`Even so,the costs imposed per inclusionary unit are considerable. Figure 9 shows the average cost associated with selling a price-controlled unit based on the standards in those cities and the market prices.In cities with more restrictive price controls and higher land values, the cost is higher. In the median city the cost of providing each inclusionary unit is$346,212.In one fourth of the jurisdictions the cost exceeds 5500,000 per unit. HOUSING SUPPLY AND AFFORDABILITY 115 Figure 9: Average Cost Associated With Selling Each Price-Controlled Unit $1,300,000 $1,200,000 $1,100,000 $1,000,000 $900,000 $600,000 $700;DDD $600;000 $500,000 $400,000 $300,000 $200,000 MEN $100,000 $D , .. , oro M fC to H p o m p to O w X—_N�d 0.0tD y C 0.0=•�7,C TT{9.�-'C m T o Ep8v�v_,Qo'"�`Foyi ty>vm`n°ppC°rm�am='5pmm'�. i=mE �e �O-f�OU NVnC+]L�n+=f`O�C]��OJo yyZ•C,LL QC C� .��_¢�^�y�LLpmm J ifaU V.C(n'GJy>G��cCM�-CLC� 09 lLyCmJ.Cy C/_t" -, . o OW � C y L`- M y o CZ �U C a yW The cost of each inclusionary unit is large.'Next let us look at the cost per unit times.the number produced in each city(Figure 10).25 This gives a measure of the aggregate cost of inclusionary units by city for those that report creating affordable homes under inclusionary zoning. . Figure 10:Average Cost Associated With Selling Each Price-Controlled Unit Times the Number of Units $250,000,000 $225,000,000 $200,000,000 $175,000,000 $150,000,000 $125,000,000 $100,000,000 $75,000.000 $50,000,000 $25,000,000 50 C m C] T C) O n; M O O C Y N T O ^ C) O M f0 O C1_ q lC O y T OJ C ^ IC= ID W M of D O 2 CY Q O— U O N . C -�•t C ^ ` G'I-. .0�^ O lcL"J Z N L O 0 O U�G� o M ^Q `L- o F A Q) C y p j C fon V! p 00 d Z C /O F- [O C m ^ U O ` p ro^.J j j.A Cr CD _ y IC } U f1 fU CJ t0 W J ^J O V Cr CL O_ y� �w o �y y ^ y g yarn LU ,� y y 16 I Reason Public Policy Institute Including cities in.the Bay Area that just adopted.their programs,the.median city's cost of below-market units was more than$18 million.The average cost per city is$45,273,630, and in seven cities the cumulative cost of producing the inclusionary units exceeds$100 inilIion. Considering that most of these cities have a population of well under 100,000,these numbers are quite substantial.According to our estimates,the costs associated with producing inclusionary units in the entire Bay Area have been$2.2 billion. B. Who Bears the Burden of Inclusionary Zoning? The.costs of inclusionary zoning are largely hidden.None of the costs imposed on the housing market shows ;.up on,anycity's annual budget,but they still exist.Who ends up paying for that$2 billion for below-market ate:homes. One can debate exactly who bears the costs,but they are necessarily borne by someone.Because tlieyare impoSai3:on the.new housing market—and not paid for by government—the costs will be borne by ::some,combination of developers mew homebuyers,and landowners. Exactly who shoulders more of the b..urden`,clepends on m..arket conditions.iand;supply,and demand...: All theory::and evidence suggest that the costs of.inclusionary zoning will not be borne by builders but by new.:homebuyers:and.landowners.26 Construction is a competitive.industrywith relatively free entry. Local market conditions will.determine exactly how the burden is split.If buyers are more sensitive than sellers to changes in price,then landowners will bear most of the tax.This happens when more buyers have many options,such as living in similar or nearby areas.If sellers are moree sensitive than buyers to changes in price, then new homebuyers will bear most of the tax.This happens when landowners have more options,such as being able to devote their land to commercial,industrial,or other endeavors. _. If profits are abnormally high,other builders will enter the market and undercut prices,thus bringing profits down. Conversely,if profits are abnormally low it will drive would-be-builders to invest in other endeavors. When a tax in the form of inclusionary zoning is placed on builders,it decreases the number of profitable projects that they want to undertake in that jurisdiction. Builders will vote with their feet and undertake fewer projects in Jurisdictions with price controls and more in neighboring jurisdictions without price controls. The quantity of housing.produced will decrease where there are price controls,but increase in other places where there are not price controls,pushing some homebuyers away from their first choice of locations,and for developers profit rates at the margin will remain the same. Price controls may not stop all development,but new construction will decrease. In order for development in a price-controlled city to be profitable enough to attract builders, one of two things has to happen. Either market-rate home prices must increase,or land prices must decrease to compensate the builder for his losses due to price controls.Even with price controls on a portion of development,builders can still earn the normal rate of return if other home prices increase or land prices decrease. The likely result will be some combination of the two. Both effects lead to a decrease in the quantity of new housing as market-rate buyers will be able to afford less housing and/or landowners will supply less land for residential development due to low market prices. Raising home prices for other new homebuyers creates a paradox because the alleged goal of inclusionary zoning is to make housing more affordable,not less.Decreasing land prices also decreases the quantity of new housing because it discourages landowners from providing their land for residential projects.Instead, more land will be put to uses in which the final product is not subject to price controls. Thus,the restriction on the supply of land restricts the supply of new homes. HOUSING SUPPLY AND AFFORDABILITY 117 Advocates of inclusionary zoning.tend:to assume that.the below=marketxate units are subsidized out of builder profits,but economics.Predicts that.builders are actually least likely to:bear.the burden. In the very short run,if builders own the land when the ordinance was.,passed,'they.Would bear part Of.th a burden. But in the long run,builders are most able to avoid the tax because they can simply move theirconstruction to more profitable locations. The land cannot move,and buyers are often attached to living in a particular locale. Landowners and new homebuyers will end up paying for the.subsidy for the price-controlled units. Inclusionary zoning effectively acts as a taxon the production of market-rate units because developers must sell a percentage of units at a loss to gain permits to sell market rate units. If market prices went up by the exact amount of losses on the price-controlled units,buyers would bear the full burden Of the tax. If market prices did not change at all,builders and landowners would bear the fall-burden of the.tax. In most situations buyers and sellers each bear part of the tax burden. Regardless.of who bears the burden,because some units are price-controlled and others are not,the losses.from price-controlled units must be spread over some combination of buyers and sellers of the remaining units. We calculate the effective tax in each city by looking at the average cost associated with each inclusionary unit and the number of market-priced units over which the cost will be spread.To do this we multiply the cost of each inclusionary unit times the percentage mandated by each city and then divide by the percentage of market-rate homes.To illustrate,for Mill Valley each price-controlled unit has an associated cost of $747,899(Figure 9)and 10 percent of units must be sold at those price controls(Table 3).The calculation would be[($747,899)X(0.10)]/(0.90)=$83,100.To make it more concrete,if a project had 10 units,one must be sold at a loss of$747,899.-Spreading the loss over the remaining nine units gives a loss of$83,100 per market-rate unit. Figure 11 shows the effective tax on new home purchases imposed by inclusionary zoning.Inclusionary zoning imposes sizeable taxes on each newly constructed home.The median city with inclusionary zoning is effectively imposing$45,721 of taxes on each market-rate home: Figure 11: Effective Tax Imposed on New Market-Rate Units Caused by Inclusionary Zoning $220,000 $200,000 $180,000 $160,000 s $140,000 $120,000 $100,000 5 $80,000 _`; '„ ' f'i ti $60,000 , 4 z z:5 <(; .. $ O,000 is >.i ?i $20,000Turl .,: ;.I '. .r so . . . . . .. . . . . . '�, �1 �?' lit •rtr. e' �Y . . . .1'. co+c=>?�oErr IONN y•S—OIL OG[O foOfXm=01 fm0-Ood«. QO,OyIO Q�Dr6>;,—D•I=GC TCION�mN iTs N�cY- oCoG m>=OE -0Em 000M R �� o =, mmdES» . ONc fOO�, GN yO YGIO_00(J Y6L 0 01 OZ...:{p LL- � 0 m 2 GG' O Om O D-_U d IOD V D1 OY v_� C_U d^� v:•-J V! CD=: y O.^U _ O f:l ti WL`- Lp 6, tOCG d O �JCIGa f00:�>N J VIC OC NJf000V -'`LO cn cn UW C 18 I Reason Public Policy Institute In the seven cities with the most restrictive programs,inclusionary zoning imposes an equivalent tax of more than 5100;000 pet.home..In Portola Valley the equivalent tax if a developer built and sold an affordable home is well over 8200,'000 per newly constructed home. Cities with higher land values and more restrictive price controls impose the highest effective tax on new homes. After having calculated the amount of the tax,we can approximate who bears the brunt of the tax. The California Department of Housing and Community Development(HCD)takes the position that inclusionary zoning translates into higher prices for new homebuyers. HCD has consistently held this position through both Republican and Democratic Administrations:' Under most inclusionary programs,which typically include an in lieu fee[whereby the builder pays a fee to opt out of the inclusionary zone requirements]option,the cost of subsidizing low-income housing units is underwritten by the purchasers of marker-rate units in the form of higher housing prices. This practice of cost sh f ing is particularly detrimental to a home buyer who marginally qualifies for a mortgage yet earns too much to receive governmental assistance.27 We have consistenthv...asked local jurisdictions to analyze an inclusionary program as a potential governmental constraint. The reasoning for this is that most programs of this sort impose a fee or dedication requirement upon developers which is passed on to consumers of new market rate housing, raising the price of the market rate housing.28 Others believe the brunt of the tax will be home by some combination of builders and landowners.29 Figure 12 estimates price increases on new homes under the three scenarios.If the lower bound is accurate(when buyers only pay 50 percent of the tax),the price of new homes is increased by 520,000 or more in 29 Bay Area cities.If the upper bound is accurate(when buyers pay all of the tax),the price of new homes is increased by 820,000 or more in 45 of the 51 Bay Area cities with inclusionary zoning. San Mateo is the median city; inclusionary zoning increases new home prices there by 522,064 in scenario one,537,067 in scenario two, or$44,128 in scenario three.Portola Valley imposes the largest burden;inclusionary zoning there increases new home prices by 5111,921 in scenario one,8188,028 in scenario two,or$223,842 in scenario three.Although the goal is to produce more affordable housing,inclusionary zoning is actually producing the opposite effect. Inclusionary zoning translates into significantly higher prices for market-rate homebuvers. By creating price controls on a percentage ofunits,it taxes other new units and leads to higher housing prices. To the extent that sellers bear more of the burden of taxation,the housing market also faces negative consequences. Because builders can move to jurisdictions without inclusionary zoning,they will not bear the burden of the inclusionary zoning tax. Thus, landowners will bear most of the sellers' portion of the. burden. Inclusionary zoning ordinances decrease the value for which landowners can sell undeveloped land to homebuilders. Because.landowners receive lower prices,they will supply less land for residential development,and fewer homes will be built. HOUSING SUPPLY AND AFFORDABILITY 119 Figure 121: Increases in.Price of New Homes Caused by Inclusionary Zoning(Under Three Different Assumptions About Who'Bears the Costs) O Assuming 50%of tax is borne by consumers El Assuming 84%of tax is borne by consumers $225,000 p Assuming 100%of tax is borne by consumers $200,000 ii e $175,000 $150,000 $125,000 $100,000 , OZ. [ J $75,000 ' $50,000 a a f, ..S• $25,000 $O mmN'M�U••=�?omommxeym. :d.3_�� 'i .. o�od-5,C° :=v'o^mE U.c.f tA^ > C•U O)'�Gf�`m_O N oz—tatL O C G E fa 61 r0�Q•�p U��Ui1L'_o O o D CD C fn D? lJ.i2.L OfC C a`,•r2 N�ICcO O C N dO�Y C v'fa.0 ti N'�ILCC'N`o a1 p7 d>«+ .-C CJofOCG Uef L7�.— 7—a= ycn� to �' rGN m, tp�y� n�N W�=Uc)n`�—�m a Cn �m >` o N � ��� U USC W N to 0 Governments already give landowners incentives to supply land for commercial and industrial uses instead of residential ones. Since Proposition 13 limited increases in residential property taxes,governments began creating incentives for developing commercial real estate instead ofresidential because it generates more revenue. This has become]mown as the"fiscalization of land.use." One study described how local govemments:responded to limits on property taxes this_way: .. :::::: Local municipalities employ two primary methods for reveriue:gene.ran.on:the imposition of heavier exaction;feesfor new development and the promotion of retail development in order to maximize sales tax revenues. This has had a direct,deleterious impact on new housing production.Rather than adopt land-use policies that advance or incentivize new housing production,developing new retail centers— such as big box developments, entertainment complexes,and shopping destinations—emerged as the primary approach for increasing local government revenue. Consequently,residential development(and other forms of development)suffered due.to a lack of incentives or outright disincentives.30. Inclusionary zoning ordinances add yet another disincentive to provide land for residential development. When part of the burden of taxation is borne by landowners,we should expect inclusionary zoning to decrease the supply of new housing. 20 f Reason Public Policy institute C. The Effect of Price Controls on Housing Construction In addition to increasing prices,inclusionary zoning leads.to a decrease in new housing.Economics clearly predicts that the quantity of construction will be lower after the adoption of inclusionary zoning.But advocates of inclusionary zoning advance an alternate hypothesis that the quantity of construction will be the -same(or higher)after the adoption of inclusionary zoning.By looking at the data of housing construction, we can get an idea of which hypothesis is correct. One test is to look at the amount of new construction in years prior and years following the adoption of an inclusionary zoning law. We examined Construction Industry Research Board yearly housing permit data for single and multifamily dwellings to compute average construction pre-and post-ordinance. For example, Larkspur adopted its ordinance in 1990 and union City adopted its ordinance in 2001.We would thus compare Larkspur housing construction in 1989 and 1991,and union City housing construction in 2000 and 2002.We also looked at three-,five-and seven-year averages before and after the ordinances and found similar results.Because ordinances have been adopted throughout the past 30 years(Figure 1),economy- .: :'; phenomena such as business cycles should not be biasing the data in either direction. The:data:andicate that inclus�ona. ;tonin does:indeed lead to a decrease in new construction.Figure 13 shows the aveiage.production.ofnew residences:vl the:.yean:.pnonand:the:year after the adoption of inclusions tonin 1n the_:year`. iior:tothe ado .tion of:inclusionary zonin ;'the average city ry. g. P P.. b € added 213 new residences;whereas in the year following the adoption of inclusionary.zoning;:the average city only added 147 units.For the 45 cities in the sample,thatamounted to 9,618 units the year prior to the inclusionary ordinance and 6,636 units the yearfollowing the inclusionary ordinance.On average,new construction fell by 31 percent in the year following the adoption of the inclusionary zoning ordinance. Figure 13:Average Production of Housing Before and After the Ordinance for 45 jurisdictions (One Year Before/After Adoption of Inclusionary Zoning) 250 200 147 150 - 100 50 0 Before After Recall that over the past 30 years inclusionary zoning in the Bay Area has only led to a reported 6.836 affordable units,which amounts to 228 per year.If we loot:at the 45 inclusionary cities that produce the yearly average of 14.7 units,we might expect as many as 663 units per year.For the 45-city sample, however,the data indicates that inclusionary zoning may be decreasing the production of housing by upwards of 2,982 units per year(Figure 14).This is crucial because most entry into the housing market b} lower-income families is by buying older homes freed up when middle-income families move into new HOUSING SUPPLY AND AFFORDABILITY 121 homes.31 Reducing the overall production of housing both drives up prices and means that the people crowded out of-the housing market are the lower-income would-be homeowners. Figure 14: Comparing the Increase in "Affordable" Units to the Overall Decrease in New Construction Associated With Inclusionary Zoning 1,000 663 500 U Inclusionary units produced (for 45 cities for one year) 0 -500 -1,000 -1,500 -2,000 -2,500 -3,000 To check if one-year results were not coincidental,we examined construction for the seven,years prior and seven years following the ordinance.We found similar results.32 This 14-year data exists for 33 cities. In those cities we found that in the seven years following the adoption of inclusionary zoning housing, production decreased by 10,662 units.In the sample the median city's(median)value of existing homes is $611,651. If those 10,662 units would have been worth$611,651 per home,then the value of housing not built because of inclusionary zoning is approximately six and a half billion dollars. For those 33 jurisdictions,in only seven years the average destruction of value per city is$198 million. Additional statistical work on inclusionary zoning is needed.The data indicate that the number of units pushed out of the market by inclusionary zoning is much larger than the number of"affordable"units built. Advocates of price controls must recognize that their programs lead to only a handful of below-market units coupled with a sharp decrease in market-rate homes.Because we cannot directly observe the thousands of homes never built,the costs of the program go largely unseen.Also unseen are the 2,982 families each year that cannot buy homes because inclusionary zoning prevented the construction of additional homes.Is a program that destrovs billions of dollars worth of housing and prevents thousands more families from getting a home than it places in an"affordable"unit worth the high costs? 22 I Reason Public Policy Institute Part 5 The Fiscal Cost ofPricen rocs to TI', '1'1• t t and Local -oma;,:; fit N oto,illy:iio_pnce.:cgntrolsr]ead to a decrease in the quantity of housing and an increase in prices for :consumers`but. rice:.controls also lead to decreased revenue for both state and local government. . ......: ... ............ Inclusionary zoning ordinances;are often sold to policymakers as the proverbial free lunch,with proponents claiming,.,A.i%ast:incliisionary program need not spend a public dime."'' Even if market-rate buyers and a to thea nce of the subsidy,so the areument goes.at least local governments need not °1landowners?�:end;iiiP:;P;.3t .g.�. �P, 3'> .. g spend:.revenue::to:create affordable housing. Proponents write,"From a local agency standpoint,inclusionary zoningrovides:'affordable:housin at no public cost"(emphasis added).34 The story,however,is not that p g P ( P �'> simple::.rhie advoeates fail.to':take account that inclusionan zoning leads to direct losses.in state and local government revenue. Inclusionary units demand and receive the same municipal services as market-rate homes. There is no evidence that providing municipal services to price-controlled homes is less costly than providing to market- priced homes.The cost of inclusionary zoning to governments comes from the fact that price-controlled homes cost the same to service but generate less revenue. Because the values of the homes are set at below- market rates,the assessed values are lower and so their property tax is lower. Thus,although governments may not spend"a public dime"to produce price-controlled'homes,they take on an obligation of providing municipal services while receiving lower annual tax revenues. The cost to government from price-controlled units is the difference in the annual tax revenue that would have been generated had the same homes been assessed at market prices. If the real estate tax rate is 1 percent per year,a 5700,000 dollar home generates$7,000 in government revenue,whereas a 5200,000 home generates$2,000 in government revenue. To calculate the yearly tax revenue lost we take the difference between current market price and the price-controlled price times 1 percent(for the property tax) for each unit. Multiplying times the number of units in each jurisdiction gives us a rough measure of the lost tax revenue per year.Biasing our numbers downward is the fact that we do not count the lost revenue from the homes never produced because of price controls.Biasing our numbers upward is the fact that not all market-rate homes are assessed at current prices due to Proposition 13. But the numbers illustrate the limit as homes are frequently resold and reassessed at current prices.They also approximate how much revenue would be gained if price-controlled units were reassessed at market rates. We do not believe that the goal is to maximize tax revenue at the expense of low-income households,and we are not advocating raising real estate taxes for low-income residents.But before considering inclusionary ordinances,governments must look at their budgets and examine whether better ways of helping low-income households exist. HOUSING SUPPLY AND AFFORDABILITY 123 Figure.1.5:.Yearly Loss in Combined.State.and..Local Government,Revenue Due:to Price Controls (Assuming All Units Are Assessed at Current Prices) $2,500,000 $2,000,000 n- $1,500,000 "' $1,000,000 k'I :::•n d.�.j ,` ai1 Vii. �Ai :'.> L $500,000 . : ; O fL m >- m 0 [L m IL O C` enT O C m O 6 M O m= 0 c1 O y �-m O O > m •> cc -co >'O Z D Q CJ Y O N Co CLT > •y O QO O 2.0 C Q N C C C O fC0 ,N O Q O U C Y O In ^Q IL O m m O LC N VJ D cc O ^� en Z C IL F- LL .- C m ^ J U Q f6 p J j E n m d f0 ^ c=c O N N } G W = U 2E C n L.L.J Cn = -Z 0 U d � y C N V LL G m N C = N r Government would be well advised to consider these yearly costs before adopting inclusionary zoning.It is important to note that the lost tax revenue occurs not just in one year but every year that the price controls are in existence.The total present value of lost government revenue is$553 million.(Figure 16).35 Although inclusionary zoning is often pitched to governments as a zero-cost method of creating affordable housing, the costs from lower assessed valuations are quite large. Figure 16: Present Value of Yearly Loss in State and Local Government Revenue Due to Price Controls (Assuming a Discount Rate of 3 Percent and That All Units Stay Assessed at Current Prices) $70,000,000 $60,000,000 $50,000,000 $40,000,000 $30,000,000 $20,000,000 $10,000,000 $0 11M 11 11 ;11 :11 1 o m= m T m o m u) = is o m a ^ m o o T Erti o m— m= ac— -� Cm o= o m L) m o v - _ m m o - in ^ ^ = ^ c U O Cm o .y o m m Y m m a' ^ > m _o fL y p m Z ^ C IL a^ I--Q U ^ : m C .O+ fL J m � C m m m }mow r m �_ [) m mm3 ^ J ' oc�y cL a>ac W 2 ti f1 U LL) N. 241 Reason Public Policy Institute Both state and.local govetnments..bear.some ofxhe burden of lost tax revenue caused by inclusionary zoning. Property tax revenue goes to the state government,and a portion is rebated back to city and county governments. The exact-amount returned.to each-jurisdiction varies significantly,so our above estimates measure the combined total of lost tax revenue without distinguishing the particular splits between local and state governments. An important implication from this is that although inclusionary zoning policies are usually debated and implemented at the city and county levels,state legislators should be concerned with these policies too. Each additional local inclusionary zoning ordinance adversely impacts the tax revenue not just of its own jurisdiction but also decreases the state's tax revenue. HOUSING SUPPLY AND AFFORDABILITY 125 Part 6 rm AffordabilTbe Effect of Lon� eit y Controls he resale restrictions imposed.by inclusionary zoning ordinances devalue homes and create unintended incentives that undermine the goals of inclusionary zoning. Administering and policing.these resale price controls,which typically last 30 years or more and are renewed upon each sale,generate additional expenses for local governments. A. Incomes Change Inclusionary zoning may not be the best method to help low-income families because it gives long-term subsidies to households that may not stay at low incomes.To the extent that households remain in units after their incomes rise,the unit may not be occupied by the most deserving families. Providing homes at below- market rates gives long-term benefits to some who may only need short-term help.Inclusionary zoning targets households currently low-income but usually does not take potential future income increases into account.Most people have lower incomes in their twenties and thirties(at the beginning of their careers), higher incomes in their forties and fifties(at the peak of their careers)and then higher wealth but lower annual income in retirement(Figure 17).36 The affordability requirement misses all of this. People at the start of their career may be low-income and qualify for an affordable unit today,but may end up making much more money later on.Given the nature of the affordability controls,however,those who receive the affordable units will be able to keep their below-market housing payments even after they are in higher- income brackets. Figure 17: U.S. Median and Average Income by Age $50,000 to $40,000 c $30,000 $20,000 zv 0107- $10,000 '� = Median Income—Average Income $0 . 15-24 25-34 35-44 45-54 55-64 65+ Source:Data are from U.S.Census Bureau:Historical income Tables—People 1974-2001;Table P-10. 261 Reason Public Policy Institute Research shows that most low-income households actually move into higher-income categories as time moves on. university of Michigan Panel Survey on Income Dynamics data show that of those in the bottom 20 percent income bracket in 1975,only 5.1 percent of them remained in that lowest income bracket by 1991. In fact,29 percent of the lowest fifth of income eamers in 1975 had moved to the top 20 percent of income earners in 1991. This means that price-controlled units can continue to subsidize households for years while ignoring their increasing incomes. Tying long-term assets such as homes to programs aimed at helping low-income households is usually not the most efficient way to help low-income earners. The funds could be more effectively targeted by tying subsidies to shorter-term cash flows that do not remain as people move through their lifetime earnings cycles.ontohigher.incomes. B. Incentives for Mobility and Improvements Despite the fact that families may stay in their subsidized home years after their incomes rise,resale price restrictions are put in place with the hope that eventually the home will be sold to another low-income family.One advocate summed the reasoning for resale restrictions: "In order to ensure that affordable units remain affordable to the same income population for whom they were targeted,inclusionary zoning ordinances must include provisions for maintaining affordability for a specified period."37 Despite their good intent,resale restrictions adversely impact the incentives for residents to move as well as maintain their propem. Many people sell their first starter home and move to larger homes as their earnings increase over their lifetime,but price controls create incentives for families to stay.in their homes long after they need them. One of the main benefits of homeownership is building equity in a home that can appreciate in value. Inclusionary zoning removes this benefit because it controls resale prices.Because appreciation is limited, owners of price-controlled units often cannot build up the necessary equity to afford a down payment on a larger market-rate home. So even as incomes rise,a disproportionate percentage of those in price-controlled units will remain in them longer than they would otherwise choose. While families may initially feel lucky to have received a subsidized home,in the longer term the wealth constraint imposed by limiting appreciation actually may serve to trap them in a lower quality of housing by limiting their ability to upgrade. Also,because owners of restricted units are not permitted to sell at market price,much of the incentive to maintain the property is taken away.This makes it more likely that price-controlled units will deteriorate over time. Even the owner of a less well-maintained property would be able to find buyers if the legally mandated price is significantly below the market equilibrium price. Owners of restricted units who spend resources maintaining their home have to pay all of the costs and receive few of the benefits. In addition, because the potential for the sweat-equity gains of home improvement are taken away,improvements are less likely to be made. Consider the case of one resident of Paim Springs. Richard Fontius did not realize his inclusionary zoning home had resale price restrictions piaced on it over two decades ago. He recently remodeled the home, adding a swimming pool and 400 square foot additiop., and planned on selling it after the improvements. Now the city is considering enforcing the resale price restrictions. Richard Fontius says, "If I knew about it to begin with I would not have bought it."38 The many residents aware of their resale restrictions will be less likely to improve their homes or spend resources to prevent deterioration. The problems will worsen over time as already pricey market-rate homes increase in value but homes under price controls do not. Occupants of price-controlled homes may feel like second-class citizens because the government prevents them from gaining in equity. HOUSING SUPPLY AND AFFORDABILITY 127 Some government agencies realize the problems created by resale restrictions. One city's report assessing its inclusionary zoning program noted,"Failure to consider improvements in the calculation of resale value may discourage property owners from investing in improvements."39 It also wrote that,"The question of resale value highlights the conflict between preserving the stock of affordable units and allowing the build-up of equity for the owners'use."40 Other jurisdictions are more blunt. Dennis Lalor;the executive director of the non-profit that manages the city of Hollister's resale restrictions,said simply,"The idea of wealth creation was never.part of this[inclusionary zoning]."41 Unfortunately,the umntended.consequences of preventing wealth creation are that families remain in the price-controlled units even after their incomes rise,thus preventing other low-income families from moving in.In addition,the properties deteriorate because there is less incentive for maintenance and improvement.Homeownership is often considered the American dream; unfortunately,homeownership with little or no potential of appreciation is not the same thing. C. Inclusionary Zoning is Costly to Administer and Police As market-rate homes continue to appreciate,owners of price-controlled units have.a tremendous incentive to get around their resale restrictions and sell for market rates. Unless local jurisdictions spend time and money monitoring units carefully,some may be sold or subleased at market prices. The Niguel Beach Terrace condominiums on the Dana Point Coast illustrate the problem. More than 200 units were sold at below-market rates with resale restrictions during the early 1980s. Just as the resale restrictions were about to expire in 2003,the California Coastal Commission issued 143 cease and desist orders(38 of which have been retracted)to owners thought to have either sold.or rented out their units for market rates 42 Some owners reportedly have rented out their units for more than$1.000 per week while they moved out-of-state. If the charges are accurate,more than 50 percent of the owners of subsidized units in this complex violated their resale restrictions. Although some residents may have purposefully ignored their restrictions because of the huge potential gains,others tried to play by the rules but were frustrated by poor administration. Homeowners claim that administration of the ordinance was so poor that they could not find out which agencies to contact about selling or renting out their units,so they had no choice but to go out on their own. At least three different agencies have monitored the program since the condominiums were sold in the early eighties,and one admittedly had neither the staff nor the money to handle the program.43 The current nonprofit managing the restrictions,Civic Center Barrio Housing Corporation,was reportedly notified that many of the units were being rented out improperly in the early nineties but did nothing." The condominiums at Dana Point are not the only ones with a poor enforcement record.In one case in the city of Hollister,a real estate agent involved in a resale violating the price controls wrote the city about her seller's intent.The city never even:responded.The city now admits that it received the letter but did not respond because it had no system in place to prevent owners from selling at market rates.45 Programs that do monitor resale are often costly to administer.Running and monitoring the program in Palo Alto costs$40,000 to 560,000 in annual administration costs alone.46 But in the previous 30 years only 152 for sale units and 101 rental units have been produced.47 These administration costs of inclusionary zoning could have been passed on to housing consumers in the form of housing assistance.A report by Bay Area Economics notes: 281 Reason Public Policy Institute In general,program managers characterized monitoring of inclusionary requirements as a challenging process. One Sunnyvale Housing Division staff person described the monitoring requirements as 'time consuming'and 'cumbersome.'Complications regularly arise from unit resales,owners renting out their units,and tenants and owners losing their qualifications as their incomes grow,among other iSSUeS.49 The debate on inclusionary zoning often ignores the consequences of long-term price controls and the associated administrative costs. Advocates of inclusionary zoning leave out important details such as how the property will be maintained and whether long-term,in-kind subsidies are the best way to help those earning low income. Our evidence suggests that these problems and their costs are quite significant. In addition,inclusionary zoning creates other administrative costs because the price-controlled units are far more difficult to sell than market-rate homes.One of the biggest challenges for builders of price-controlled units is qualifying buyers. Some builders estimate that the administrative cost of selling price-controlled homes is about double what is spent on market-rate homes. One builder describes the costs of qualifying buyers for a current development in Novato. For the 40 buyers we have to date,we have processed over 270 applicants. The conversion ratio is so low that we are hiring additional staff to process the workload. The city also required us to have a custom software program developed to manage the list of applicants. The procedure is so complex that the software costs over$400,000 to develop. This cost is for onlY 352 homes.49 The process also takes time.The same builder says that at the Meadow Park development in Novato,"The —_ process,as mandated by the city,is so cumbersome that we have only been able to sell 40 homes in 6 months.We started with over 2,600 prequalified buyers and have only been able to process 270 potential buyers netting 40 sales in 6 months.We literally can build the homes faster than we can process sales." Both the direct administrative costs and the financing cost of carrying unsold inventory while searching for qualified buyers are additional administrative burdens created by inclusionary zoning ordinances. HOUSING SUPPLY AND AFFORDABILITY 129 Part 7 The Debate on Ind usion airy Zoning any advocates of inclusionary zoning entirely ignore its economic consequences. A fe-w advocates, however,at least try to take the economic problems into account.A handful of law reviews do attempt to defend inclusionary zoning on this front.SO Some argue that inclusionary zoning may impose costs,but the costs will be offset,insignificant,or deserved. These authors conclude that inclusionary zoning.may not harm the supply of housing as economists would predict. Some of the ideas contained in their articles have made it into the popular debate. This section examines and addresses some of the most often repeated arguments.51 A. How Effective are Density Bonuses? Some advocates of inclusionary zoning argue that density bonuses—or giving builders.the option to increase the density of their developments in return for making more of the units affordable—can offset costs,thus mitigating any potential price increases and leaving builders with the same incentive to supply homes. One actually claims that density bonuses can completely make up for the costs of inclusionary zoning: "High enough density bonuses create affordable units at no cost to landowners,developers,or other homeowners."5` The assertion that density bonuses offset costs associated with inclusionary zoning has several problems. First,as generally practiced in the Bay Area,inclusionary ordinances do not even offer density bonuses for meeting the ordinance's requirements.These jurisdictions only offer density bonuses if developers exceed the ordinance's requirements. Even where density bonuses are made available,some of the most enthusiastic promoters of inclusionan' zoning concede that they are not a panacea for addressing its substantial costs: In many cases,developers do not seek to take advantage of density bonuses,for a variety of reasons. First,some developers cannot use a density bonus because their project alreadhas a high number of units per acre.... Second,a density bonus is not applicable to certain types of developments_..because a density bonus...may not be economically beneficial. 7nird, many developers do not seek to increase the density of their developments to maintain a level of density they believe is critical for the marketing of their development. Fourth,in some instances,a higher density would require developers to change their buildings to amore expensive construction type,which can offset the per unit land cost savings Foy- exam or example, if a higher density requires changing the construction of a building from a wood frame to a concrete and steel structure,per unit construction costs may rise signihcantlY. Fifrh,higher densities in 30 I Reason Public Policy Institute manv communities can be controversial. Some existing community members may protest a higher density development in their neighborhood.53 Yet another problem with density bonuses(and other oft-cited incentives such as development fee waivers) is the risk that thev may trigger prevailing wage requirements under 2002 changes to California's prevailing wage statutes. While to our knowledge neither the courts nor the Department of Industrial Relations has definitively resolved the matter,at least some local jurisdictions have raised the possibility that incentives offered to private developers for the construction of affordable housing may trigger-prevailing wage requirements and thereby undermine the efficacy of the incentives: California State law intended as incentives for developers to create affordable housing are often ineffective due to competing laws with differentpriorities. Developers often find themselves in a position unable to take advantage ofstate Density Bonus law and local f nancing incentives(i.e.,fee waivers and reductions)in order to construct affordable housing because State law also requires developers to pT, prevailing wages to all subcontractors when thev take advantage of these incentives.. . [PI revailing wage requirements...can add 20 to 30 percent in additional construction costs to a new housing project. Often,this deems the incentives cities can offer to induce developers to include an affordable housing component not much of[an]incentive after all." In sum,we believe that many advocates of inclusionary zoning have substantially overstated the potential of density bonuses and other incentives to mitigate the very significant costs associated with producing inclusionary units. B. Inclusionary Zoning and Housing Costs One of the most common errors made by advocates of price controls is asserting that the costs of inclusionary zoning are not reflected in higher prices for new homes. One leading advocate of inclusionary zoning argues that inclusionary zoning has no effect on housing prices even while acknowledging that it imposes significant costs on housing production. The claim is made that development costs have no impact on housing prices: "The price of housing is not a function of its development cost. Rather,housing price,be it rents or sale prices,are solely a function of market demand"(emphasis added).55 Another writes: The.short answer is that, while the costs may be shared among developers and landowners, the landowners likely suf er-the most loss.Prospective homeowners are least likelY to be affected,as their willingness to pav is what sets the market price, not the costs incurred by the developer.56 Thus,according to these arguments,landowners rather than new homebuyers bear the full burden of inclusionary zoning's costs. Although tliese arguments sound more sophisticated than those of advocates who ignore the economic issues completely,they are just as wrong. Economic principles teach that prices are determined by demand and supply and that cost increases most definitely impact both supply and price.Although two proponents are correct that developers cannot raise prices without constraint and that developers will charge as much as the market will bear,they misunderstand the simple fact that if costs increase for all builders due to an inclusionary requirement,the price that the market will bear will increase. Figure 18 shows that increased costs shift the supply curve up and to the left. As the supply curve is shifted,the new equilibrium will be on HOUSING SUPPLY AND(AFFORDABILITY 1 31 a different point—at a.lower quantity and a higher price-along the demand curve.This is.textbook economics. Figure 18: Restrictions on Supply Lead to Higher Prices Supplyl supply2 'w/more (w/less restrictions) restrictions► o� P1 ...................... 0 CL 0 P2 ........ .......... ....... Demand for Housing Q1 Q2 luantity of Housing Furthermore,even if landowners bear most of the cost burden,inclusionary zoning still reduces the quantity supplied. As previously noted,imposing these costs on landowners simply lowers the value of the land for residential uses and creates an incentive to develop nonresidential uses—precisely the opposite incentive sought by those who want to increase the quantity of housing in California. Others argue that the quantity of new construction will be the same even if builders have to absorb all of the costs. "Even if their profits are not maximized,developers will still realize acceptable profits. Therefore, developers will still,develop.'.'5'This assertion too misses another important economic principle.When businesses end up with less money from an endeavor,they will participate in.the endeavor less. Construction is.a competitive industry characterized by ease of entry and exit.When developing becomes unprofitable, would-be-developers simply take their resources elsewhere.If profits are abnormally low,builders do not passively respond and continue building at the same rate. They pack up their materials and build in another community where the returns are normal. If price controls were enacted over large geographic areas and builders could not move,people would simply invest less in developing and move to other regions. This phenomenon is currently visible as Bay Area homebuilders increasingly focus their activities on the Central Valley,the Sacramento area, and even Riverside County.With lower profit margins,less capital would flow into the building industry,making the equilibrium quantity go down. The resultant fewer homes translate into a lower quantity and a higher equilibrium price.Builders' ability to withdraw from markets means costs will be passed on to landowners,and market-rate buyers.In the extreme case in which builders could not pass on any costs,they simply would not build. These arguments for inclusionary,zoning also demonstrate a failure to understand another important aspect of homebuilding:Building is extremely risky. In California it can take years and millions of dollars in planning,environmental,and legal fees before a project receives the necessary governmental approvals. Even then;the entire investment can be lost if local voters reject the project in a referendum. As a result, 32 I Reason Public Policy Institute even during.the-best.of markets,the approval process is fraught with risk. Thus,to suggest that developers will(or should)accept returns not commensurate with that risk ignores basic economics. C. Socioeconomic Integration Integrating different cultural. ethnic and income groups is often one motivation for creating inclusionary zoning.laws. The science of economics evaluates the means of achieving different ends. It cannot say whether the ends themselves are desirable. In the case of inclusionary zoning for the purpose of socioeconomic integration,economics identifies what the costs of achieving this end are. Inclusionary zoning's price controls raise the cost of market-priced homes, lower tax revenue to governments,and restrict the supply of new homes and perpetuate the loss by driving builders and middle- class buyers out of the market.All of these costs of inclusionary zoning documented above can be quite substantial. Because inclusionary zoning discourages new construction and drives up housing prices,these ordinances actually make housing less affordable. Advocates of inclusionary zoning often claim their goals are both more affordable housing and socioeconomic integration. For example,one wrote,"Inclusionary housing should certainly be supported:as a means not only of providing affordable housing,but also of furthering social and economic integration in traditionally segregated suburban areas.s58 But the two stated goals of inclusionary programs are contradictory. If inclusionary zoning is used for socioeconomic integration,the result will be less affordable housing. In other words,less affordable housing is the"price" a community pays for using inclusionary zoning to promote socioeconomic integration. And the resulting climate of inclusionary zoning,with less builders,less homes,and higher prices,forges a composition of very wealthy and subsidized poor with little middle class—a somewhat feudal-looking environment that minorities,unless they are wealthy or have won the"inclusionary zone lottery,"cannot penetrate. Economics does not pronounce judgment on the goal of socioeconomic integration,but it does point out that the costs of using inclusionary zoning to promote integration are quite high and their success is questionable. Economics also shows that those who wish to use inclusionary zoning to promote both socioeconomic integration and more affordable housing are bound to fail because the policy trades one of these values off at the expense of the other. D. increasing Supply is the Key to Housing Affordability Many advocates of inclusionary zoning believe that the market is to blame for the housing affordability crisis. People hold this belief for two major reasons. First is the failure to understand what caused such high prices in the first place. Second is the belief that without restrictions on building,only mansions would be built and low-income households would not benefit. Let us first deal with the cause of the affordability crisis with the Bay Area as the example.Many factors contribute to the high demand for housing in the Bay Area.But a large and more affluent population means large increases in demand for many goods and services. Prices of haircuts,meals,bicycles and movies have not increased nearly as much as home prices. These other goods have remained affordable because as demand for these other products increased,few regulations prevented suppliers from bringing more goods to HOUSING SUPPLY AND AFFORDABILITY 133 market.'Market.signals created by.: e:increase in demand induced suppliers to.provide more products or services. With more goods available,prices did not.increase dramatically. The same.market signals have not increased.the quantity of.housing supplied. 'Why not? Housing prices in California,and in many urban areas,have skyrocketed but have not been met with the usual increase in supply. The reason is simple:housing regulations have prevented builders from building enough new homes to meet demand. A myriad of regulations,prohibitions,and questionable liability laws discourages,and often prevents,new home production.For example,state Environmental Quality Acts produce a number of problems because they give power to local government to lengthen processing time indefinitely;what previously took one year now can take ten.Regulations such as exclusionary zoning laws, moratoria on new construction,preservation ordinances,crippling workers' compensation regulations, environmental regulations;and legal processes that can delay development for years have all contributed to the high cost of housing.All of these regulations prevent increases in the quantity of housing supplied and drive up the price of housing. A number of studies confirm that regulations are the cause of high prices.Edward Glaeser and Joseph Gyourko studied nationwide home prices and found that an"affordability crisis"only occurred in particular geographic areas that had restrictive land use regulations.The authors found that"Zoning and other land-use controls are...responsible for high prices where we see them."59 Entitled land has such high prices because permits to build are so scarce. Glaeser and Gyourko's estimates indicate that only 10 percent of the gap between construction costs and home prices is caused by intrinsically high land prices;the other 90 percent is caused by zoning and land-use regulations.They conclude: If policy advocates are interested in reducing housing costs,they would do well to start with zoning reform. Building small numbers of subsidized housing units is likely to have a trivial impact on average housing prices, even f well-targeted toward deserving poor households. However,reducing the implied zoning tax on new construction could well have a massive impact on housing prices.60 Other studies have similar findings.A study by University of California at Berkeley economists on land use regulation's effect on housing prices found that until 1970 California housing had been in Iine with the national average of housing prices,but by 1980 California housing prices more than doubled the national average.They determine that one major cause of the price increase is"a massive increase in the use of land- use and growth management techniques to slow and stop new housing production.,61 In a study of housing costs throughout the United States,one economist concludes,"One thing is obvious: Stringent housing regulations have certainly not helped the San Francisco area solve its housing problems. They may even be creating the problems.s6' Another study with a different methodology reached similar conclusions.It constructed an index of seven different land-use regulatory variables and ranked 56 different metropolitan areas according to how strictly land use was regulated.b' Regulatory variables included measures such as changes in length of approval time,time required to get land rezoned, amount of acreage zoned for residential development,and percent of zoning changes approved. It found that a change from a lightly regulated environment to a heavily regulated one decreased the number of permits to build by 42 percent and increased home prices by 51 percent. Homeownership rates also declined about 10 percent. Evidence shows that areas with high levels of regulation have higher housing prices,higher rents,and lower homeownership rates. 341 Reason Public Policy Institute Price controls are perhaps the worst`.`.solution"to a housing affordability problem caused by prior restrictions on housing. The real solution is to encourage the issuance of building permits,open more land for responsible development,and abolish zoning laws that unduly restrict development.If government reduced and eliminated regulations that slow and prevent housing development,the housing market could respond to increased demand lust like other industries in California. Some advocates of inclusionary zoning recognize the problems caused by prior regulations but still recommend inclusionary zoning. One admits that,"To a large extent,it is not the presence, but the absence, of a free market in housing that has helped create a shortage of affordable homes for many Americans.s64 Yet he still favors price controls because he believes that even if the supply of new homes is increased,only high-priced.new construction will be built and affordability will not be improved.But inclusionary zoning advocates misunderstand the basic principle that all new housing helps keep prices down.A sample ordinance prepared by the Institute for Local Self Government states that inclusionary zoning helps,"Offset the demand on housing that is created by new development."These authors appear to believe that producing new housing actually hurts low-income households. Contrary to misconceptions,when market-rate housing is built,all income groups benefit. When a household moves into new market-rate construction,a household with lower income typically purchases its existing house. The concept is sometimes referred to as"filtering"because as families upgrade their homes, their old homes filter down to people who could not afford them before. Another way of thinking about it is that in a sense the housing market can be seen as a ladder,with affordable homes mainly older homes on the bottom rung,and people trading up homes and climbing the ladder as their fortunes rise.65 Perhaps a better word or better analogy is needed,but the process works.A classic study,New Homes and Poor People by Lansing et al., examined the chain of existing home sales in 13 cities and found that each neve home generated an average of 3.5 moves.66 All those moves increase the available supply and lower the price of existing homes,which makes them more affordable to low-income buyers. The study reports that 9 to 14 percent of all people who moved in the chain of upgrades generated by a new home were low-income.The effect on moderate-income families is even stronger.In moves after the first new construction move,people of moderate income made up 30 percent of movers. Lansing et al. conclude,"Any policy which increases the total supply of housing will be beneficial. The working of the market for housing is such that the poor will benefit from any actions which increase the supply in the total market.,67 Some assert that filtering does not take place when more people are moving into the area. One writes, "Whenever the number of persons interposed between the original buyers and the target population increases,filtering slows. In the 1970s and 1980s a surge in the number of younger adults at middle.- incomes all but eliminated filtering to the.poor."68 Although he is right that when more people move into an area they will jump in on the chain of moves,that does not mean that the new construction did not help to keep home prices affordable. The relevant question that must be asked is what would have happened to prices if the new construction had not been built. If no new construction is built and more people move into an area,they start bidding against existing residents and drive the price of even low-quality homes higher. In contrast,if the number of newly constructed homes equals the number of new residents,prices will remain: stable. One way to analyze whether arguments against high-priced new construction makes sense is to asl: whether destruction of existing high-priced homes would help low-income families. A 2002 study by two Berkeley professors and one analyst with the Public Policy Institute of California. states the problem quite simply:"supply matters.,,69 They find fnat the more responsive the permitting HOUSING SUPPLY AND AFFORDABILITY 135 process(and hence home-building)is to increases in employment,the lower the median price of housing and the higher the homeownership rates. Inclusionary zoning does not correct the problems caused by exclusionary zoning;instead it exacerbates them. Inclusionary zoning imposes significant costs on the housing industry,and density bonuses plus other incentives do little to offset costs.Inclusionary zoning is like a tax on new homes,and,like all taxation, builders will not simply absorb the tax and provide the same number of homes at the same prices. The driving force behind California's housing affordability crisis is restrictions on supply. The State.of California's Little Hoover Commission recommends, "To increase the supply of affordable'housing, communities need to zone more land for housing,increase general plan and zoning densities to allow for higher density residential development and rethink other standards.i70 36 I Reason Public Policy Institute Part 8 Conclusion nclusionary zoning should only be enacted if the goal is to make housing more expensive and decrease the quantity of new housing. Such policies hurt homebuyers and will price out most low-income families. Despite the good intentions of those who support inclusionary zoning,economics tell us that price controls on new housing will have the unintended consequence of reducing the quantity of new homes built.Rather than helping, inclusionary zoning will actually make the affordability problem worse. We have shown that inclusionary zoning imposes significant costs on the housing sector. Those costs are passed on to landowners and buyers of market-rate homes.Higher housing prices will result. We agree that something should be done about the affordability crisis;but price controls are not the answer and may be the problem. Bay Area cities will never be able to rely on inclusionary zoning to meet their housing needs. In fact.inciusionary zoning has led to a decrease in housing production.After 30 years of feeble performance,the costs of inclusionary zoning are only beginning to be seen.Rather than continuing to impose these policies,jurisdictions would do well to eliminate them.By phasing out resale restrictions on existing units,the"owners"of gov emment-controlled units would gain the true benefits of homeownership. And by ending price controls on new construction,builders would have an incentive to supply more housing. The worst possible solution to the affordability crisis is to pass policies that result in restricting the supply of housing.Inclusionary zoning is one such policy. HOUSING SUPPLY AND AFFORDABILITY 137 About the Authors Benjamin Powell is an Assistant Professor of Economics at San Jose State University and an Adjunct Scholar with Reason Foundation. He received his Ph.D.from George Mason University in 2003. Be has numerous publications in scholarly journals,policy papers,and the popular press. Edward Stringham is an Assistant Professor of Economics at San.Jose State university and an Adjunct Scholar with Reason Foundation.He received his Ph.D.from George Mason University in 2002.He is Winner of the Paper of the Year Award from the Association of Private Enterprise,Best Article Award from the Society for the Development of Austrian Economics,and Second Prize from the Independent Institute Garvey Essay Contest.Stringham serves on the Executive Committee of the Society for the Development of Austrian Economics and on the Executive Committee of the Association of Private Enterprise Education. Powell and Stringham's other recent work on housing includes a policy study,"Estimating the Effects of Price Controls in.the Redevelopment of the Fort Ord Military Base"-and testimony before the Board of the Fort Ord Reuse Authority.Powell.and Stringham also have the entry on"Housing"in the forthcoming Concise Encyclopedia of Economics. Note: The authors appreciate research assistance from Daocheng Zhu and a research grant from the Home Builders Association of Northern California. Related Reason Foundation Studies Smart Growth in Action,Part 2: Case Studies in Housing Capacity and Development from Fentura County, California,by William Fulton,Susan Weaver,Geoffrey F. Segal,and Lily Okamura,Reason Foundation Policy Study No.311,May 2003,http://wwA,.rppi.org/ps3l l.pdf San Jose Demonstrates the Limits of Urban Growth Boundaries and Urban Rail,by Randal O'Toole,Reason Foundation Policy Study No.309,April 2003,http://www.rppi.org/ps3D9.pdf Smart Growth in Action:Housing Capacity and Development in Ventura County,by William Fulton,Chris Williamson,Kathleen Mallory,and Jeff Jones,Reason Foundation Policy Study No.288,December 2001, http://www.rppi.org/p s2 8 8.pdf Smart Growth and Housing Affordability:Evidence from Statewide Planning Laws,by Sam Staley and Leonard C.Gilroy,Reason Foundation Policy Study No.287,December 2001, http://viw",.rppi.org/ps287.pdf Urban-Growth Boundaries and Housing Affordability:Lessons from Portland,by Samuel Staley,Reason Foundation Policy Brief No. 11,October 1999,http://ww",.rppi.org/ufDan/pbl l.pdf Repairing the Ladder: Toward a New Housing Paradigm,by Howard Husock,Reason Foundation Policy Study No.207,July 1996,http:/rwww.rppi.orgips207.pdf 38 I Reason Public Policy institute Endnotes ' The median city is the one where there are an equal number of cities above and below it when ranked by housing price effects. 2 See the statements of the housing advocacy coalition National Housing Conference at www.nhc.org 3 National Housing Conference,Inclusionary Zoning: The California Experience,(Washington,D.C.: National Housing Conference);2004,http://www.nhc.org/nhcimages/Califomia%20IZ/CaIZO4.pdf. 4 Erin Riches, Locked Out 2004: California's Affordable Housing Crisis (Sacramento, California: California Budget Project,2004),p.13. California Coalition for Rural Housing and Non-Profit Housing Association of Northern California (2003)..Inclusionary Housing in California:30 Years of Innovation,p.3. 6 Other studies that look at cities alone count the number to be 101 in the Bay Area.Bay Area Council (2003)Bm,Area Housing Profile:A Report Card on the Supply and Demand Crisis,Bay Area Council: (San Francisco,CA,2003),p.8. Riches,Locked Out 2004,p.13. Bay Area Council,Bay Area Housing Profile,p.8. 9 Ibid.p.8. 10 National Association of Homebuilders, Housing Opportuniny Index: First Quarter(Washington, D.C.: National Association of Homebuilders,2002). f4 lnclusionary Housing in California:30 Years oflnnovation,pp:31-35 lists three counties(excluding San Francisco,which is its own county)in the Bay Area that have inclusionary zoning.According to its table, 756 units have been produced in Contra Costa County, 124 units in San Mateo County,and none in Napa County.Because it is unclear if city and county governments double counted these 880 units, we exclude these countywide figures from our sample.If these units are indeed separate, then we underestimate the number of units by 11 percent and later underestimate the costs of inclusionary zoning by a comparable figure. y 12 Association of Bay Area Governments,Regional Housing Needs Determination for the San Francisco Bm,Area in 2001-2006 Housing Element Cvc/e(Oakland,California:Association of Bay Area Governments,2001). is Consider the reaction of one developer in Windsor,California. Orrin Thiessen,the architect and developer behind downtown Windsor's transformation,said if he is required to build affordable units along with his market-rate town houses,it could put him out of business."That'll kill some of my projects,"he said."I'm buying land at very high prices and building very expensive buildings on top of it. It's pretty simple from my perspective.It just doesn't pencil out."Clark Mason,"Windsor may bend rules for developer."Press Democrat,October 17,2003,pp.2-3. William Tucker.Zoning,Rent Control.and Afj'ordabie Housing,(Washington,D.C.:Cato Institute, 1990). 15 Michael Stoll,"Mission Bay Takes Shape,"San Francisco Examiner, September 13,2002. 1E Weare not measuring what economists refer to as social costs,which would include the value of the lost consumer and producer surplus associated with inclusionary zoning.We are simply estimating the. monetary amount that a seller must forgo when selling at the restricted price. HOUsINCSUPPLY AND AFFORDABILITY 139 17 Some cities,including Tiburon, define"Moderate"income as 80 percent of median.Thus,when surveys say .they target "Low". and 'Moderate":income, .in fact .they...are.targeting "Very Low" and "Low" incomes.(See Tiburon Ordinance Subchapter 6:Inclusionary Zoning.) 18 Income categories are adjusted by household:size. Compared to.a.four-member household,a household with five members can have an 8 percent greater income,a household with six members a 16 percent greater income,etc.Households with three members will have a 10 percent lower income,two members 20 percentlower:and one member 30 percent lower according to the Department of Housing and Community Development.Because the four-member household is the baseline,:we focus on four- member households.throughout the paper. 19 Barbara Kautz,"In Defense of Inclusionary Zoning:Successfully Creating Affordable Housing" University of San Francisco Law Review,vol.36,2002,p. 1014,gives an additional legal reason: "An inclusionary ordinance that does not limit the resale prices of for-sale units(creating `premium pricing' for the first buyer)may vulnerable to attack for`not advancing a legitimate state interest."' 20 Phone interview,March 3,2004. 21 Personal correspondence,March 3,2004. 22 For example,inclusionary zoning in Pleasant.Hill requires 5-25 percent of units be affordable,and its target groups-are".Very Low"and"Low."In this case we would assume only 5 percent needed to affordable and-the share was split 2.5 percent for"Very Low' and 2.5 percent for"Low."Because data for specific requirements of each city are currently unavailable,we decided to make simplifying assumptions and again err on the side of lower costs of inclusionary.zoning. 23 We estimate market price by city by comparing 2003 data of the average price of new homes by county compiled by First American Real Estate Solutions and 2000 Census median price of existing homes by city.Because new homes in the Bay Area sell for more than the 2000 median price of existing homes, and because new home price data by city is difficult to assemble,we adjust the 2000 Census city data based on each county's price differential for new homes.In Alameda,Contra Costa,Marin,Napa, San Francisco,San Mateo, Santa Clara, Solano,.and Sonoma the ratio of the price of new homes to the price of existing homes is.1.8.2.0, 1.4,2.2, 1.2, 1.6, 1.5,2.3,and 1.3 respectively.For example,the 2000 Census median price of existing homes in the city of Sonoma was$305,100,so we multiply that by 1.3 to estimate that a new home would be sold for closer to$400,000. 24 Data on each city's specific formulas and specific price controls are currently unavailable, so we make standard assumptions about target income groups. 25 The figure looks at costs in today's prices.The divergence between current price controls and the price at which the units currently could sell gives us comparable numbers in today's dollars.It does not calculate the home price for the year the price-controlled units were built or calculate the price controls in that year. Donna Jones,"Homes,Good and Cheap: Low-income Buyers Get High-Quality Homes, " Santa Cruz Sentinel,January 10,2004,p.9. reports on one project built in 1998 that helps illustrates our assumptions.When homes were first sold,government set the prices at around$160,000.Today government sets their prices at$280,000, and"they would be worth at least$800,000 on the open market."For the purposes of our calculations,we would subtract the restricted price of 5280,000 from the market price of$800,000 to arrive at the$520,000 difference.That price control(and that difference divergence between the market price and the restricted price)is no longer imposed on the initial seller but is now imposed on the current owner. If 10 homes were in a project,the equivalent cost from the price controls would be 10 times that number. 26 The requirement of subsidized housing has the same effect as a development tax.The developer makes zero economic profit with or without inclusionary zoning,so the implicit tax is passed on to consumers (housing price increases)and landowners(the price of vacant land decreases). In other words,housing consumers and landowners pay for inclusionary zoning."Robert Burchel and Catherine Galley, 401 Reason Public Policy Institute "Inclusionary Zoning:Pros and Cons,"in The California Inclusionary Housing Reader, (Sacramento: Institute for Local..Government,2003),p.29. 27 California Department of Housing and Community Development letter to the city of Fairfield, July 16, 1996. 21 California Department of Housing and Community Development letter to the city of Fairfield,April 26, 2001. 29 Laura Padilla, "Reflections on Inclusionary Housing and a Renewed Look at its Viability"Hofstra Law .Review,Vol.23, 1995,p.576. 31 Joel Kotkin and Thomas Tseng,Rewarding Ambition:Latinos,Housing, and the Future of California (Malibu:Pepperdine.University School of Public Policy,2002). 3 i Howard Hussock,Repairing.The Ladder.-.Toward a New Housing Policy Paradigm, Reason Foundation Policy Study No.207,(Los Angeles:Reason Foundation),July 1996. 32 Our data is from 1970 to 2002,so we have data for seven years prior and seven years following for 33 cities that created their ordinances between 1977 and 1995. 33 Andrew G. Dieterich, "An Egalitarian Market: The Economics of Inclusionary Zoning Reclaimed" Fordham Urban Law Journal,vol.24(1996)p.41. 34 Several studies emphasize the assertion that ther is not direct cost. See Kautz,".In Defense of Inclusionary Zoning;"p.5;Robert Burchel and Catherine Galley,"Inclusionary Zoning: Pros and Cons," in The California Inclusionary Housing Reader(Sacramento:Institute for Local Government,2003), p.29; and Marc Smith,et.al.,"Inclusionary Housing Programs:Issues and Outcomes,"Real Estate Law Journal,.Fall 1996, 35 We assume a 3 percent discount rate and that price controls will be in place for 47 years,the median length that Bay Area cities intend to impose them. 36 Many wealthy,aged individuals have low income because they are retired,but they own their homes and have low expenses.Aggregate"Housing Needs Assessments"about income and housing affordability would mistakenly classify them in the category of low-income families in need of a home, e.g. Citv of Salinas Inclusionary Housing Program Feasibility Studv(Berkeley,California:Bay Area Economics; 2003)p.i. 37 Michael Rawson,et al.,Inclusionary Zoning:Policy Considerations and Best Practices (Sacramento, California: California Affordable Housing Law Project of the Public Interest Law Project,2002). 38 Brian Joseph,"Palm Springs resale restriction pinches residents," The Desert Sun,June 23, 2003. 39 Monterey Staff Report"How Did We Do? 17 Recommendations for the Monterey County Inclusionary Program," in The California Inclusionary Housing Reader,(Sacramento: Institute for Local Government,2003),p.63. ao Ibid,p. 64. 41 Dean Paton,"The equity debate," The Pinnacle,Vol 17,No 52, September 25,2003. 42 Dan Weikel,"Coast Homes Battle Grows"LA Times,December 1,2003. 43 Ibid. 44 Ibid. 45 Paton, "The equity debate,"Vol. 17,No. 52, September 25,2003. 46 Bay Area Economics;"The Bay Area Case Studies,Report to the City of San Jose,"53-62, The California Inclusionary Housing Reader(Sacramento:Institute for Local Government, 2003),p.56. HOUSING SUPPLY AND AFFORDABILITY 141 .. - .. -..... ...t.,. ... ... c. ....a....: .. .. .. .. .. ... , L P... .:'. ...:,......:y._.J.... ,.........:.............. ......... ......_.,.._.... ,..._,...: ..a...1._ .... .................. ...._ ,...T..,.L f..-. ........ ...:.. .... - ..._....-.,....-.......,!_.•.'.� ,1, !�1 corre an,..,..;,I....,,,.::::•Pr.ersona`lt: d ce: :..:::.::.:.....:::::.:_,......... s ened' P :.I..:. .-:.-, .. .i... ..,., .......:.....:. .E.adi'lia_,-:. -&bo ....:._ ,,..._,.::.Q,>,,;. re ;«_. - ;.:.:etl I•: hons'onTnclus>onary�ioov usrnb, DtenchAn EgaIitariati;Ivlarket, and:Kautz, ::In uning G.I. ... :•,,: :..... .... .. ..._.:.r�:,.J. .:v.T,....,,..,,......_�—,.:......... .-.... - D.reterich:`::._An E a'litanan`Market":';partirrulaily';'deserves ar.more thorough. pint=.by; oint enti u;, } 1 avhich.is!:b'e,'yoniithe'rscope.iof thts`study�IerelweJcomitient on a fewiofthe popular and often repeated errors in`lus stud ,,._. .•::':•,:sal.. : ......... .:.... ... ... .... e...,•., ..,,..........1...... ., .. ,....... ....:.:.;,L..... : x _. In•.D�fense Inclusion r.;2ontn dP..aul'Rosen;Inclusiona:; Plriustrt .Im lementat:on PolICI es;Pr:.acttees ai:d;Prti a t7'.r. . . g., :P .t, . Admtntstrat:on UT or:'CityIrAngeles;'2003);x:45: Ci ty Pt §bur ::'2004 Hous:n :}Element'.ITC?D:-Revlston;Draft 1`3'=87''`"'";':i:;•.:; ss David-Faul:Rosen"`Inclus>ona--:II:ousin '-and'tlZts Irn'act on'rHousrn :and'Land IVlarkets"..WCH`:= :....- I:.,,r ... A ordable:Houstn .,'Polte...Re'v T . .. ... -...... .... ...g.. tew V.o:31';:,Feb.: 004; 42. p:!,::,DarLn:,Smrth . uoted<,7nKautz':l56 `:IniDefensem Inclusion..,...::':ZoninQ"' `96:::.'.:.'::::;;': ........ f.., bf P.adtlla .Reflect'rona on,Inclusronary..t3ous�n aanda Renewed Look,af;its;\?iabili ":Ho'stra`=Law g tYf . Revt0;,p..57,6::F.urthermo e,she wtttes,L`Even ifTnots-10.0%°compensated;any remaining'costs would siinply�be;'absorUed:as aacost�ofrdomg�usiness"p X77 =r _ 58 Edwaid'Glaeser •:-Iiii&Jose_h'G rlco;'``Zoning s'SteepPrice"Regulation;V.olume:25.fNninber 3.;Fall ;., .601 2002- - ,Ibrd ,,::: ... �':.i:....:..•.:.:.x�., .:,..•:::..:.. .. 61 Lawrence Katz and Kenneth Rosen, The Effects of Land-Use Controls on Housing Prices(Berkeley, California:Institute of Business and Economic Research, 1980). 62 Tucker,Zoning, Rent Control, and Affordable Housing. 63 Stephen Malpezzi,"Housing Prices,Externalities,and Regulation in U.S. Metropolitan Areas."Journal of Housing Research(Vol. 7,No. 2, 1996),pp. 209-241. 64 Dieterich,"An Egalitarian Market:The Economics of Inclusionary Zoning Reclaimed,"p.47. 65 See Howard Hussock,Repairing The Ladder: Toward a New Housing Policy Paradigm, Reason Foundation Policy Study No.207,(Los Angeles: Reason Foundation),July 1996. 66 John Lansing,Charles Clifton,and James Morgan,New Homes and Poor People(Ann Arbor,Michigan: Institute for Social Research, 1969). 67 Ibid,p. 68. 68 Dieter•ich,"An Egalitarian Market,"p.97 69 John Landis,Elmer John,Vicki and Matthew Zook, "New Economy Housing Markets:Fast and Furious-But different?"Housing Policy Debate,Vol. 13 No.2,2002,pp.233-274. 70 Little Hoover Commission;Rebuilding The Dream:Solving California's Affordable Housing Crisis (Sacramento,California: Little Hoover Commission,2002),p.26 d h.a7,q-a.r� iiia^;._-:•,�1�1.,4:.,+::;-yC:? sI'-�� s .ta.;:I.t4q z+ r$ � �n�r I•- �I.rya ,Y:g;rrw' `j5a" '' -4'•.�: aria. "�"'�'=�:'.� T '�i 3ff It`�,�,_,il,,;-.�.Y.,(^:`i.•r�:''i',.IS '-%�. ,rcUil�'r,:5%:i`.,;:.,� Yxn.. ' :.rx.GJ`.ss-.-a„ :ilti:l...�. .1,M:ax:clw.l,Y.�'ki:£•�:i'a:YAr 1L::� err'� 11 t V1 01 �w. .. .. ..:...... .,.. x.,'&xkA .y.tlr •� " � is !: n4''� d�• � •r.J•wyp {'' :'i •.y uli 1 . 'bel d'.4rt•nnr I %X ! A4, r '�d;e',•:.: s� �.� �"��+;`�F;:-"";!z I ,e, i1 � iw! I: 1. 9 3. . ,.�•.S,aly�-n I Reason Reason Public Policy Institute 3415 S.Sepulveda Blvd.,Suite 400 Los Angeles,CA 90034 310/391-2245 310/391-4395 (fax) ~Av rppi.org Policy Claims With Weak Evidence: A Critique of the Reason Foundation Study on Inclusionary Housing Policy in the San Francisco Bay Area Victoria Basolo Department of Planning, Policy & Design University of California, Irvine and Nico Calavita Department of City Planning San Diego State University June 2004 ABOUT THE AUTHORS Victoria Basolo is an Associate Professor in the Department of Planning, Policy, &Design at the University of California, Irvine. Her research focuses on housing and community development policy,urban politics, and regionalism. Nico Calavita is a Professor in the Graduate Program in City Planning at San Diego State University. His research interests include politics of growth and affordable housing policy. Page 2 of 15 TABLE OF CONTENTS EXECUTIVE SUMMARY 4 BACKGROUND 6 WEAKNESSES .OF THE•RESEARCH 6 SCOPE 6 RESEARCH DESIGN 9 DATA AND ANALYSIS 9 MISLEADING ASSERTIONS 11 CONCLUSION 12 REFERENCES 13 APPENDIX 14 RESEARCH DESIGNS 14 Figure 1.Reason Foundation vs.Proposed 14 RESIDENTIAL BUILDING PERMIT DATA BY YEAR 15 Figure 2. Hypothetical Permit Data for 1975-1995 15 Paoe 3 of 15 EXECUTIVE SUMMARY The Reason Foundation study of Inclusionary Housing (IH) in the San Francisco Bay Region claims to examine "the economic and real-world consequences of inclusionary zoning." In reality, the study does not provide the empirical evidence necessary.to assess the merits or demerits of IH. The narrow scope of the research, the flawed research design, the data limitations and the weaknesses of the analysis are so consequential that few, if any, of their conclusions are useful to policymakers. To wit: • The research design lacks a comparison between cities with and without IH and the authors do not provide long-term data by year. Itis therefore impossible to ascertain whether.the:decline in housing production iri:localities with IH is: 1) due to IH per se or, 2) part of an overall downward trend in housing production in the Bay Area or, 3) due to the time of enactment of IH in relation to the economic cycle. For example, fifteen of the IH programs in .the Bay Area were passed between 1989 and 1992,just before or.at the very beginning of the economic recession of the early and mid-1990s. • Shortcomings in data collection plague the analysis throughout the..report and case counts are presented in confusing ways. For instance, the authors have incomplete information on 17 out of 50 cities they list and use the average of the remaining 33 cities to "fill" in the incomplete information. • The authors use largely anecdotal data to substantiate some of their claims, the comments of a builder on page 28), and do not provide scientific evidence on which to base conclusions. More rigorous, systematic qualitative and/or survey research is needed before generalizing about the perspectives of developers. • In calculating the cost of IH, the report utilizes homeownership figures only, when a large percentage of units provided with IH are less costly rental units. The report's authors also insist that developers do not pay any of the costs of IH. but only landowners - who sell to developers at a reduced price to reflect the cost of IH - and the buyers and renters of IH. However, there is general agreement among observers and researchers of IH that developers are likely to share some of the cost. • In calculating the additional cost of IH to the developer, the authors assume that the developer is mandated in all cases to build the IH units, that the units will cost the same as the market units to build, that there are no incentives and subsidies available to the developer, and that developers are not capable of being innovative in finding solutions that reduce their costs. These assumptions do not reflect reality. Page 4 of 15 • The-authors view IH abstractly and rigidly., and not as-bei loufdome,ofrpolitical and economicprocesses thatattempt to balance the community's:interests with those of the=developers:TH has evolved as a multifaceted,approach limed in most.cases sat,reducing political opposition by:netitraTimg:or:reducirng�the additionalcosts that developersincur::inprovidingaffordablehousing: Any analysisrbf:'the:costs:associated•:with-.IH needs:to takednto account.the evolving nature'of.a.systeminarked:by'flexibility, adaptability and change. Similarly,;the authors present an.elementary discussion of supply and demand relying on a static model and ignoring that housing is a special case of a good that can be viewed as having many quality.sub=markets and a finite supply of available.land for development. We agree with'the-authors that empirical research is needed to evaluate IH as a policy mechanism to produce affordable housing. The need for future research was emphasized in the recent report,Inclusionary Housing in California: 30 Years of Innovation: "While this report provides a useful snapshot of inclusionary housing programs in California, more research in this area is needed" with.a'':.potential.area of research":being 11 . compare housing production of communities within the same region, those with inclusionary.and.those without."(page27). Strangely-enough, the authors.of the..-Reason Foundation study.did-not heed the call for a comparative approach,thus calling.into question their main finding.Inclusionary Housing In California also called for "%an analysis of the cost impacts of inclusionary programs on market-rate units." Unfortunately, the cost-impact analysis of the Reason Foundation study is seriously flawed as outlined above and elaborated in the body of this paper. The need for an empirical analysis of IH remains. 1 Pace 5 ol 15 BACKGROUND In.April-2004 the Reason.:Foundation:(RF) --.alibertarian.think.,tank--.:published a study titled "Housing:Supply..:and Affordability: Do Affordable>HousingMandates Work?" This .study;authored.by:.ProfessorsBenjamin Powell.andEdward S.tringham,-San Jose State University, claims.to investigate empirically:the.':effects.of.inclusionary:.zoning and examine- whether:it is:an.effective public policy response.:to high housing prices" (Executive rt Summary, 15'page). The RF repoprovides a preliminary and substantially flawed analysis of the effects of.inclusionary housing (IH)in the.San Francisco Bay:(SFB) area. The purposes of this critique paper,are to: 1) identify the major weaknesses of the research; 2) examine the reasonableness of policy claims based on the research; and 3) recommend:a.more rigorous and policy-relevant route for future research on IH. WEAKNESSES-OF THE RESEARCH The research in the RF report has many weaknesses that severely diminish its power to provide useful.policy recommendations. While this critique paper does not address.all the weaknesses of the research,it discusses several major shortcomings that render the RF report wholly insufficient for the purposes of policy development and/or evaluation. This critique is organized around several problem areas including the scope and-assumptions of the research, the research design, the quality of the data analysis, and misleading assertions. SCOPE The research is narrowly defined and lacks depth and balance in its framing and analytic interpretation. The authors comment, "Without knowing the economic and real-world consequences of inclusionary zoning, policymakers have difficulty assessing the merits or faults of inclusionary zoning" (p. 2). The implication is that they will provide the information to adequately assess IH policy. They do not. The research falls considerably short of a full analysis of the "real world consequences" of IH and, as a result, has very limited utility for policymakers desiring to assess the merits or faults of the policy. Specifically, the authors never acknowledge, or even ponder, any of the benefits of IH, and instead, seem to dismiss M's direct value: the provision of affordable housing. The analytic framework presented in Part 2 of the RF report consists of an elementary discussion of supply and demand. The authors describe a static model and ignore that housing is a special commodity. That is, markets are dynamic and housing can be viewed as having many quality sub-markets and a finite supply of available land for development. ' ' Lack of available land occurs for a variety of reasons including build out,physical features of the land, regulations,etc. Page 6 of 15 Tlies&factors and`thehi 'hl rp ulated and.differentiated�ce-velo.. merit�ontexts-at the local g. Y g p .:.... .::.. ...: . level, make::it=difficult:for developers`:to-enter or:exit::particular.housIng:.markets .one of the assumptions of.theRF study. `The-works of economists,Rothenber,a et 1;! Y. and Galster and"Rothenberg (1991);are good examples of-a more complex analysis.of housing markets along these lines.' A number of questionable assumptions occur throughout the report. `We provide several examples of these'assumptions and briefly discuss their shortcomings. 1. Every IH housing unit would have been a for-sale, market-rate home In calculating the costs associated with IH, the authors assume that every unit created through an IH program would have been a for-sale, market-rate unit. IH,however, is applied to both rental and for-sale projects. Even in the case of for-sale projects, not all cities require that the affordable units be for sale. Similarly, granny-flats can be used to meet single-family requirements. The cost associated with making a for-sale unit affordable to low-income households that is the same as market-rate units is much higher than rental, granny flats or other types of units. Calculating.the cost of IH on the basis of for-sale units only makes the authors' claim that "In half the-Bay Area jurisdictions the cost associated with selling each inclusionary unit exceeds $346,000. In one-fourth of the jurisdictions the cost is greater than $500,000 per unit, and the cost of inclusionary zoning in the average jurisdiction is $45 million, bringing the total cost for all inclusionary units in Bay Artea to date to $2.2 billion," highly bombastic but not based on the actual functioning of IH. This assumption is particularly troublesome in the context of Part 5 of the report where the authors calculate the fiscal costs of IH. Specifically,it results in compounding any error in the assumption. For example, overestimating the number of counterfactual market units (the one IH unit to one single-family, market-rate unit assumption) overestimates the tax and other fiscal consequences of IH. 2. Costs associated with below-market units In calculating the additional cost of IH, the authors assume that the developer is mandated in all cases to build the IH units, that the units will cost the same as the market units to build, that there are no incentives and subsidies available to the developer and that developers are not capable of becoming innovative in finding solutions that reduce their costs. These assumptions do not reflect reality. • In lieu fees. According to the report Inclusionary Housing in California:30 Years of Innovation (2003), 81% of surveyed jurisdictions have in lieu fees. While in some cases the fees are calculated to reflect the actual cost of providing the subsidized unit, "Typically, the dollar total of fees collected is not sufficient to produce the same The works of Galster and Rothenberg also clearly explain the problem with assuming filtering will produce sufficient affordable housing.especially for lower-income households. Page 7 of 15 number.of:.units:that.•would:have been.moduced.:had.developers opted.to:.build:the units themselves".:;(p.:12). :In%.other.words, developers in mos.t.cases.use iin:lieu:fees to meet-their IH.requirements.and:do not build the.units because itis:cheaper::not.to. For example,.in the recently.adopted IH program in:San Diego,in:lieu fees.are;calculated to generate half of the cost of producing the unit. • Unit modifications. IH units can be smaller; with fewer bathrooms; and with a reduction in the quality of finishes. Also, the design of the subdivision can be changed (for example, the width of streets can be reduced) to reduce the cost of development. • Incentives and subsidies. As the report,Inclusionary Housing in California: 30 Years of Innovation points out, "The relatively high percentages of respondents providing subsidies, as well as various fees concessions and incentives,indicates that many jurisdictions are 'paying' for inclusionary housing, either by direct cash assistance, foregone revenue, or both" (p. 18). Developers, then, are not bearing 100 percent of the cost of affordable units. • Innovative approaches. Innovative developers have learned to work with non-profit housing developers and take advantage of subsidy programs, such as state and federal tax credits, which allow them to provide affordable units at a much reduced cost. 3. Developers will not build housing in communities with IH policy The authors imply that IH chases off housing developers. However, their report also shows that housing units have been built in communities with IH. Clearly, some developers have.produced under IH.and, as discussed above, have effectively competed in IH environments through innovative physical design (unit modifications) and cooperation (public, nonprofit, and private sectors). In short, the authors view IH abstractly and rigidly, and not as the outcome of political and economic processes that attempt to balance the community's interest with the developers'. IH has evolved as a multifaceted approach aimed in most cases at reducing political opposition by neutralizing or reducing the additional costs that developers incur in providing affordable housing. Any analysis of the costs associated with IH needs to take into account the evolving nature of a system marked by flexibility, adaptability and change. As discussed above, the authors present a constrained analysis with little complexity or breadth. However, sometimes, for reasons of feasibility,researchers analyze only one aspect of a policy. Even in these cases,the research should possess two attributes. First, the report of the research should include a strong statement of what the research does and does not include. Second, the research should be designed and analyzed to provide the most valid results and the conclusions should follow from those results. In the RF report, the design and analysis have significant flaws, and therefore the results call into question the policy recommendations. These issues are discussed in the following sections. Page 8 of 15 RESEARCH DESIGN A major flaw.i:A research desigii is the authors' decision..to focus only on cities that adopted IH.'The need for a:comparattve approach was emphasized.in the recent.##.prt, : Inclusionary Flousing.in California:30 Years:of Innovation:.A "potential area:of research - would be to cornpare housing production of communities.within the same region;those with inclusionary.and those without'"(p. 27). Strangely enough, the authors of the'Reason Foundation study:did not heed-the call for a comparative approach, thus calling into question their main finding;that'housipg.production declines:'after the passage of IH (see•Figure l in the Appendix for an illustration of.the.authors'.research design and•the.design we p-ropose as a better test of the impact of IH on the supply of housing). The authors also do not provide long-term data by each year of their study period. It is therefore impossible to ascertain whether the decline in housing production in localities with IH is: 1) due to IH per se; 2) part of an overall downward trend in housing production in the Bay Area (see further discussion of this point in the Appendix); or 3) due to the time of enactment of IH in relation to the economic cycle. This last point needs some elaboration. Quite often the enactment of IHprograms:are a response to the political pressures that build up from the steep increases in housing costs, usually.associated with periods.of.econorriic expansion.-Not surprisingly, it takes time for the momentum for IH to build.up and 'for the IH program to be developed and approved, with most programs passed at the apex or the beginning of the waning of the economic boom. For example, fifteen of the IH programs in the Bay Area were passed between 1989 and 1992,:just before or at the very beginning of the economic recession of the early and mid-1990s.Housing production fell sharply during those times, a decline that the report attributes to IH. The proposed design is quasi-experimental and should involve regression analysis with control variables. In other words, the authors do not control for many potential threats to the. validity of their results (e.g., the adoption of growth controls, available buildable land in the city).'etc.). DATA AND ANALYSIS The report contains some useful descriptive information gleaned from secondary sources. The National Association of Builders' index (Part 1 of report).is well-circulated and underscores the problem of housing affordability in California, specifically for ownership housing. The adoption of IH policy shown in Figure 1 and Table 2-3 of the report (pp. 4-5) shows the increased use of IH over time, features of IH programs, and an "average rate of IH production" for cities in the SFB area. However, while the authors list 50 cities,'they have incomplete information for 17 (34%) of the cities (Note that the table contains typographical errors showing no information in the column on the number of IH units,but a 0 in the average number column for two cities, Healdsburg and Hercules) and do not address the counties at all (see report endnote#11). By relying on secondary sources and not following Page 9 of 15 up by contacting jurisdictions with missing information,the authors present only a partial look at IH in the SFB area and miss the opportunity to add to their data. The missing data for number.of units produced.per year in the.17 communities.with incomplete information:are."filled" with:the.average gf;the remaining 33 cities (result shown in Figure 2,p. 6). Given that'the overall number.. f cases (cities) is relatively small, the assumption:.that.the average.:for the otlier:.cities can.substitute for.the actual value of..the missing cities is troublesome. However;the authors.use this technique without even a rudimentary.analysis to determine if.the iriissing cases are systematically different from the ,.... . cases with.full:data.(e.g ., Are population.growth rates significantly different statistically? Did the number of.building permits differ in a statistically significant way?Did the cost/value of housing differ?What is the amount of land available for residential development in the two sets.of cities? Are there differences in regulations controlling growth between these cities? etc.). For-this type of analysis,the authors could have used available data from Census 2000 and performed difference of means.tests.as an elementary and quick check of their assumption. Shortcomings in data collection plague the analyses throughout the report and case counts are presented in confusing ways. Recall that Table 2-3 (pp. 4-5) lists 50 cities of which 17 have incomplete information. At times the authors use all 50 cases in their analyses using the missing values. .On page 20, they write about"the 45 cases in the sample" (looking at permits issued one year before and after the adoption of IH) and then on page 21,they are analyzing "33 cities" (looking at permits for longer before and after periods). On page 21, a reader may think they are analyzing the.33 cities with complete information,but they are not, according to footnote#32: "Our data is [sic] from 1970 to 2002, so we have data for seven years prior and seven years following for 33 cities that created their ordinances between 1977 and 1995." The 33 cities referred to in this latter analysis exclude six cities with complete information in Table 2-3 (pp. 4-5) and include six cities with missing data (filled with the mean of cities with information). The changing.sample sizes and composition cast major doubts on their conclusions. The shortcomings in analysis are compounded by the data problems, but, even with better data, the analyses fall short of producing valid results for policymakers. For example, the authors use building permit information to "show" that IH results in a reduced supply of housing overall.' Their analysis considers the time period before and after the IH policy went into effect for the "the 45 cities in the sample" that had IH policies. Their Figure 13 displays results using data for the average number of permits one year before and after the policy adoption and the authors comment that they found similar results in three-, five-, and seven-year averages,but of course, the sample size has 26% fewer cases in these longer periods and therefore, is not comparable to the one -ear averages. The authors assert with great confidence that, as a result of IH, 2,982 fewer units were produced the year after the adoption of IH for 45 cities. Besides the data problems outlined above, the one-year decline would be especially puzzling if, indeed, it was associated with Building permits are used as a proxy for construction. Page 10 of 15 IH. Builders complain that processing plans takes.an inordinate amount of tiim;acertainly more:than one year. In fact,it is likelythat:developers would push through projects :before the:enactment of.1H-so:.as not.to be subjected to its requirement,with`final.approval probably happening the year after the.enactment of IH,'The point is ihat.projects approved one year after:the enactment of.: IH would be in the pipeline at tete time of the passage of IH or before. It is extremely unlikely that the reduction in one.year is due to the passage of IH requirements. The authors present mostly quantitative analyses,but occasionally include qualitative data (from interviews) to bolster their claims. But these data are anecdotal (e.g., the comments of a builder on page 28), and do not provide scientific evidence on which'to base conclusions. Clearly,more rigorous, systematic qualitative:andlor survey research is needed before drawing conclusions about the perspectives of developers. MISLEADING ASSERTIONS The report contains a number ofassertions that are not supportedby evidence and could be misleading to many readers.We discuss three examples below. 1. Builders will avoid bearing the cost of 1H The authors maintain: "All theory and evidence suggest that the cost of inclusionary zoning will not be borne by builders, but by new homebuyers and.landowners," but cite only one reference (Burchell and Galley, 2003). Actually, economists have pointed out that the costs are born, in various degrees depending on the circumstances, by homebuyers and renters,the developer, and landowners. If the demand for housing is elastic (i.e., sensitive in price), developers cannot pass down the cost increases to homebuyers or renters, and so have to reduce their profits.Furthermore, many observers have pointed out that in the long run it is probable that the landowner will bear most of the costs of IH (Mallach 1984, Hagman 1982, Ellickson 1980. A recent report critical of 1H states that with IH, "The value of existing properties as potential sites for new housing development will be reduced" (Kosmont Partners 2004,p. 4)..These arguments, however. have remained largely theoretical. For now,it would be safe to concur with Watkins (1999) who surmises that the cost of development fees - and IH is a development fee - "will always be split between all players in the development process" (Nelson and Moody 2003,p. 6). The costs of IH, then, are not automatically passed down to homebuyers and renters only. The argument that builders will not pay is based on the assumption that "builders can simply move their construction to more profitable locations." As mentioned earlier, however,housing markets are segmented and are becoming more difficult to enter due to a decreasing supply of land and more complex local regulatory environments. Page 11 of 15 2f. .:The. ndin s are, eneralizable. .. ,:,.,.g g. The.:authors.state.thai the.cities used in.their...research ".provide a good sample to.tell us how:inclusionary zoning is probably working nationwide" (p..2). Unfortunately;.because ofthe narrow scope.and assumptions,the flawed research.design, the data limitations, and the weaknesses of.the.analyses in the report,the analysis of,the Bay Area cities cannot tell us how IH is working in the Bay Area, let alone nationwide. 2. IH "cannot meet the area's affordable housing needs." The.authors.point out.that IH produces few units in general, especially compared to the need for affordable housing. That.is true. It is misleading,however, to belittle one type of affordable housing program for not meeting the entire need. IH was never intended to b-- the ethe only solution to the affordable housing crisis in California. The authors point out that the average number of IH units built since 1973 is only 228 per year. This average would have significance if the 50 IH programs in the Bay Area had been in existence since 1973. The great majority of them were passed during the 1990s, with seven of them between 2000 and 2003. For the same reasons, the authors' assertion, "In the 30-plus years that inclusionary zoning has been implemented in the Bay Area, communities with inclusionary zoning report that it has resulted in the production of only 6,836 affordable units" (page 5), is misleading. CONCLUSION The RF.report presents empirical results concerning the consequences of IH in the San .Francisco Bay Area. The authors of the Reason Foundation report apparently intended to provide policymakers with information to evaluate the impacts of IH on communities. Our purpose in writing this critique was to assess the quality of the research and note its major weaknesses, consider the reasonableness of claims based on the research results, and recommend a more fruitful path for empirical work on IH policies. Based on our assessment, the research has many shortcomings and is unsuitable as evidence for the authors' claim that IH leads to a decline in the overall production of housing and is a costly policy for communities. We have made a number of suggestions for better empirical research on IH, including a more sophisticated research design, improved data collection (quantitative and qualitative), and more rigorous analyses. Paoe 12 of 15 REFERENCES Burchell,R and C. Galley. 2003. "Inclusionary Zoning: Pros and Cons," in The California Inclusionan,Housing Reader. Sacramento:.Institute for Local Government. California Coalition for Rural Housing and Non-Profit Housing Association of Northern California. 2003. Inclusionary Housing in California:.30 Years of Innovation. Galster, G. and J. Rothenberg. 1991.Filtering in Urban Housing. Journal of Planning Education and Research 11:37-50. Hagman,D. 1982. Taking Care of One's Own Through Inclusionary Zoning: Bootstrapping Low-and Moderate-Income Housing by Local Government. Urban Law and Policy 5:169- 187. Kosmont Partners. 2004. Review of the David Rosen &Associates Report on Inclusionary Housing in the City of Los Angeles. Building Industry Association of Southern California. Mallach, A. 1984.Inclusionary Housing Programs:Policies and Practices. New Brunswick, NJ: Center for Urban Policy Research, Rutgers University. Nelson, A. and M. Moody. 2003. "Paying for Prosperity: Impact Fees and Job Growth." Cities and Suburbs Report. Washington: The Brookings Institution. Rothenberg,J., Galster, G.C., and J.R. Pitkin. 1991. The Maze of Urban Housing Markets: Theory, Evidence, and Policy. Chicago: University of Chicago Press. Ellickson, R. 1985. Inclusionary Zoning: Who Pays? Planning 51(8):18-20. Watkins, W.A. 1999. "Impact of Land Development Charges." Land Economics 75(3): 415- 424. Page 13 of 15 APPENDIX RESEARCH DESIGNS Figure 1. Reason.Foundation vs. Proposed (a) Reason Foundation Research Design: Time No random Assignment 0;,, X; O;r Where: Oil, = the number of residential permits issued in time 1 (t,, is time 2) for city i (cities with IH policy) X; = the adoption year of IH policy in city i (b) Proposed design: Time No random Oil; X; Oil, Assignment Ojli O r Where: Oil, = the same as above Oj;, = the number of residential permits issued in time 1 (t, is time 2) for cite j (cities without an IH policy) i.e., a comparison group X; = the same as above Paae 14 of 15 RESIDENTIAL BUILDING PERMIT DATA BY YEAR (An illustration) The graph in Figure 2 shows the numbers of permits over the years in a hypothetical city. While permits vary from year to year, an overall downward trend is present, even before IH policy was adopted by the city. Therefore,it is no surprise that these data would show that permits went down, on average, after IH went into effect(using the averages for 1-, 3-, 5-, and 7-year before and after periods). This example is only one city and the authors use the average of a number of cities (45 apparently in one analysis, and 33 in the others). If all the cities or the majority of the cities had a downward trend in permits over the entire study period,then the difference between the average permits before or after the IH policy was adopted would be even more dramatic than the single case—but the difference, averaged in this manner, would be very misleading. The report does not provide long-term data by year to the reader, and therefore, we cannot know if the difference in permits found by the authors is an effect of IH,the reflection of a long-term trend4, or,-as stated in the body of this critique, the date of approval of IH in relation to the economic cycle. Figure 2. Hypothetical Permit Data for 1975-1995 (Using 1986 as the year IH was adopted" 1001...... ------ 901 80 70 60 50 40 30 20 10 i 0 1978 1980 1982 1984 1986 1988 1990 1992 1994 a The data in this graph are hypothetical and are intended only to illustrate a problem with the analyses in the RF report. 4 Time series analyses,perhaps by quarter,might reveal a much more complex pattern to actual permit data than suggested by this graph or by the authors of the RF report. Paae 15 of 15 Affordable Housing in San Juan County Page 1 of 5 . :, . . y. T .... 3 : 7 'COUNTY T 1� ,u.. .. .. .. ► ; _ Community Development and . Tl anning PIS Department—Long-Range Planning 135 Rhone St., P.O. Box 947, Friday Harbor, WA 98250 .(360).'378-21'16 ] FAX (360) 378-3922 San Juan':County Affordable ousiug Long=Range Planning"DirectoW Note: Documents that are formatted as .pdf files require the use of the Page free Adobe@ Reader@. If you do not already have this installed, you may get it by clicking this hyperlink. Affordable Affordable housing is a significant problem for many of San Juan County.'.s morkers;and young families. The County has prepared two Housing Page information sheets on the affordable housing issue: Hot'Topics Affordable:Housing Defined.Ti_ffi�51(25 kB) clarifies what Community Planning affordable housing means and indicates the income ranges by household size for very low, low, moderate and middle- Population and income households. Housing Housin4 Affordability Crisis i5_0(21 kB) describes the Comprehensive Plan problem of housing affordability in the County and some of the things the County is doing to make affordable housing Unified Development Code (UDC( more available. Official Maps Legal Context. The Washington Growth Management Act and State Housing"Po.licy Act require state and local governments to promote a variety of residential densities and housing types to serve state and local residents, -encourage the availability of affordable housing to all economic segments of the population of the state, and encourage the preservation of existing housing stock. County Affordable Housing Policy. Section B.5 and Appendix 5 of the County Comprehensive Plan (links at bottom of page) address housing concerns and adopt housing policies for the County. These sections also include detailed information on the County's population Long-Range and housing characteristics, including the 1999 Housing Needs Planning Staff Assessment. Debra "DJ" Sessner, Estimates of housing need are based on a number of simplifying Sr. Planner assumptions about people's financial resources and decisions about Lynda Guernsey, how they will meet their own housing needs. Because of the unique Departmental housing market, environment, and employment characteristics of San Assistant Juan County, these estimates and assumptions must be considered http://www.co.san-juan.wa.usiplannmg/Housing%20and%20Populaiion/Affordable°ro20H ou... 6/2/2006 Affordable Housing in San Juan County Page 2 of 5 with caution. However, it is clear that if:the'-Countyis to:continue to provide a.place to.live-and work for a mide.:.variety.of.'peoole.;.and to -move toward a balanced, yea r-roun't.'econoi y in.accordance.,with:the Vision.Statement and goals of the Comprehensive.Plan, the County must act assertively to provide opportu.ities"for development of housing�affordable.to very low, low, moderate, and:middle-income groups. What .is ".affordable housing"? Housing is considered affordable to a household if that household pays no more than.30 percent.of its gross income for basic housing costs. For homeowners, this includes mortgage payments, property taxes, insurance, and utilities; for renters, this includes rent and.,utilities. .Utilities costs include water, sewage disposal, electricity and/or gas for lighting, heating and cooking. Telephone service is not considered a basic housing cost. How .are very low, low, moderate, and. middle income °grou:ps :determined? Household income groups are defined as very low, low, moderate, middiesand upper.income•by`:the relationship of their income to the median household income for the County. Households with incomes up to 50 percent of the.median income are classified as very low-income; households with 50 percent to 80 percent of the median income are classified as low-income. Moderate-income households are those with 80 percent to 95 percent of the.median, and middle-income households are those with 95 percent to 120 percent of the County median. Upper-income households are those whose household income is greater than 120 percent of the median. Household income groups are not differentiated by household size in the Census. However, income ranges for different household sizes are used by the State and the U.S. Department of Housing and Urban Development to determine eligibility for various state and federal housing programs. These income ranges are shown in the Affordable Housing Defined Fact Sheet ' (25 kB). Is there a:shortage :of affordable housing in San Juan County? Working people and people who grew up in the islands have a hard time finding permanent housing in the county at prices local wages can support. According to data developed by Washington State University, San Juan County's residents typically have the greatest gap between household incomes and housing prices of any county in the state. Typical first-time homebuyers in San Juan County can afford a housing payment of less than 400/o of the payment they must make to purchase a starter home. The average for the state is 77%. With a full 20% down, a median-income family of four in our county can still http://ww,A,.co.san-ivan.wa.us/.plarminL,/Housinal/o20and%2OPoT)ulation/Affordablc%2OHou... 6/2/2006 Affordable Housing in San Juan County Page 3 of 5 afford only 66%of the payment.needed on a median-priced home, while in most parts of the state, the median-income family can afford 110% of'the.;pri.ce of the;rnedian-priced home. For more information, seethe Housing'Affordability 'Crisis"Fact-Sheet"E (21 kB). Why ;is there a shortage of affordable housing? There are.several.factors that have combined to create the current crisis for local working people and local employers: • High land.prices, reflectingthe.desirablility of living here, and competition for available homes and building sites; • Competition for modest-priced homes by seasonal and vacation residents from throughout the-northwest and the entire U.S.; •. Predominance of rural .properties,.where large parcel size, wells and septic systems add to housing development costs; • High construction costs due to costs of transporting materials and workers to remote sites, . • High costs of providing water and sewer services with individual or small-scale community systems in the island environment. . Proposed ferry fare increases that would more than double ferry fares between 2001 and 2007. What measures can the County and State take to solve this :problem? Like many complicated problems, there is no single, simple solution. The County needs to address availability of land, cost of land, availability of infrastructure, and a lack of experienced developers. The County has a number of programs ready to attack various parts of the housing affordability problem. • Urban Growth Areas. Urban growth areas are the places where growth is to be directed in the future under the state's Growth Management Act in order to preserve rural and resource lands and protect them from sprawling, low-density development. By establishing urban growth areas on each of the main islands, the County has provided areas where higher density is encouraged and can be used to minimize land and development costs per housing unit. Because of the high cost of land in rural areas, most new housing affordable to low- and moderate-income households is expected to be developed in these urban growth areas. Much of the existing supply of rural affordable housing is expected to be lost as current owners sell. • Density bonuses for affordable housing. Higher density means more houses can be built on a given area of land, reducing the land cost of each housing unit. By making higher density available only for projects that include a substantial percentage of affordable housing through its density bonus program, the County encourages construction of year-round http://v w,�N,.co.san juan.wa.us/planning/Housin-%20and%20Population/Affordable°/o20Hou... 61/2/2006 Affordable Housing in San Juan County Page 4 of 5 affordable units at hi,gher.density, rather than seasonal homes or vacation rentals.. Density.bonuses:are.:available in specific areas of the..Eastsound::and:.Lopet Village.urban growth areas, and in certain.of.the=rural-..activity-centers on-Orcas Island. . Rural residential clusters. While rural lands are intended to be developed at low density, the County has a limited program to permit.affordable housing at.1/2=acre::density in rura I lands. A maximum of 100 units per decade on the ferry-served islands outside of.activity centers may be developed under this program, which has a number of other limitations to minimize potential impact on rural characer. . Gap financing. Past experience has demonstrated that these programs are not sufficient to induce builders and developers to construct enough affordable housing units in the conventional housing market. Gap financing'is needed from state, federal or local programs dedicated to .making housing affordable. . Land banking. Purchasing land for affordable housing to prevent the price increases of the conventional real estate market driven by seasonal., vacation and retirement homes is one of the principal objectives of the non-profit community land trusts that operate on.San.Juan, Orcas and Lopez Islands. These land trusts are responsible.for exemplary projects that have provided housing for a number of individuals and families. Implementation through Public/Private Partnerships. In keeping with the County's tradition and vision of self-help, minimal government and maximum volunteerism, the County does not intend to construct or operate affordable housing, Rather the County's proposed programs emphasize partnerships with non-profit organizations, for-profit housing developers, or individual property owners as the builders and operators of affordable housing, with the County enabling the process and ensuring long-term affordability of units constructed. Real Estate Excise Tax. The key to expanding the County's housing programs beyond making affordable housing possible to getting it built is the proposed establishment of a countywide Affordable Housing Fund with an ongoing source of revenue to purchase land and provide gap funding for affordable housing projects. The Washington State Legislature in 2002 passed special legislation that would permit San Juan County residents to enact a 1/2% real estate excise tax (REET) to fund affordable housing programs. Affordable Housing Fund Commission. Ordinance 20-2002 establishing an affordable housing fund and a commission to direct its use was adopted.by the Board of County Commissioners in November 2002. The commission has been appointed ansd is expected to begin its work in early 2003. For additional information, see the Housing Affordability Crisis Fact SheetrI1 (21 kB). Resources and Links: http://wvvw..co.san-iva,n.wa.us/planning/Housing'/020and%2OPopulation/Affordable%2OHou... 6/2x'2006 Affordable Housing in San Juan County Page 5 of 5 County policies, and Internet sources for housing affordability information. Comp Plan Housing Element (§B.5) FRO (177 kB). The Housing Element provides information, goals and policies for housing in the County. Comp Plan Appendix 5 (Housing Data, including the 1999 Housing Needs Assessment). (684 kB). The Housing Needs Assessment provides additional information on income, employment, housing sales, housing construction, housing costs, and housing needs of special population groups such as the elderly and the disabled. It also provides information on a number of federal and state housing programs. Affordable Housing Defined Fact Sheet (25 kB). Housing Affordability Crisis Fact Sheet. (21 k6). Community Land Trusts are non-profit groups that build affordable housing for workers and families through a combination of local donations of cash, labor and materials, and state and federal grants and loans. Each of the land trusts has•its own web site: [Note: these links will take you'to other Web sites on the Internet.] San Juan Island: San Juan Community Home Trust Orcas Island: OPAL Community Land Trust Lopez Island: Lopez Community Land Trust http://www.co.san juan.wa.us/planning/Housing%20and%20Population/Affordable'/�20Hou... 6/2/2006 Market.Housing Affordability 2005 - Chapter 4 - Case Study 5 Page I of 6 B1I'i�'IS� Local .Government.Guide for Improving COLUMBIA Market Housing Affordability in British Columbia Back to:Market;Housing Affordability Main Page Chapter 4: Local Governments in Action 2. Low Cost Rental Housing Case Study: Community Benefit Bonus ............ --_-.._.._. -- .._.----_,_.-- Outcome: Low Cost Rental - - �+ - _ Location: Burnaby :-..�------. ---- - Type: Zoning ` I • Descriotion • Impetus r j • —Steps • Results Costs —'' ', : i • Challenges iac#;ttrriuti;trrr^y.- • Factors:for Success j..j • Suitability for Replication • Lessons Learned • Supporting Information •..Contact Information Description? The Community Benefit Bonus (CBB)offers additional density to c town centre.areas in Burnaby, in exchange for providing affordabl, amenities, or.a combination of the two. In the case of affordable h wishes to receive and maintain title to the affordable units created under the CBB. It then leases the units to a non-profit organizatior eligible residents and, if required, supports the residents in their h, appropriate assistance. The non-profit also participates in the des which are constructed for particular resident groups. So far,the C, 25 low cost rental units in three developments. The bonus is implemented through a zoning bylaw,which includes base densities and ultimate densities, and provides clear guidelines for assessing bonus density proposals. Regulations and conditions related to bonus density are contained in the bylaw's supplementary section: • Regulations include a list of potential amenities, and refer to the Floor Area Ratio (FAR)'?bonus available for developments in designated town centre areas. • Conditions include the requirement that comprehensive development be used. Each town centre has different affordable housing needs. Staff an identifying gaps and assets in each town centre to clarify housing for developers wishing to use the CBB. The table below indicates file://CADocuments and Settings\Michael Murrav\Mv Docurrients\Ivl]MPersonal`,Planning C... 61`5/2006 Market Housing Affordability 2005 - Chapter 4 - Case Study 5 Page 2 of 6 densities for the affected Districts in Burnaby:, District Current Community Ma; Maximum Benefit(FAR) Bol Density(FAR) DE (F RM1 0.6 0.1 RM2 0.9 0.1 ;RM3 1.1 .0.15 RM4 1.7 .0.3 RM5 2.2 .04 'Assumes underground parking In Burnaby,affordable housing must meet-an identified communit: housing the private market can provide through rezoning (e.g. cor .:development zoning)or other channels. Planning staff are involve needs. The CBB policy balances the need to establish extra dens developers with good community planning principles.The develoF mutual agreement on the proposed level of density and amenity g developments are treated as equitably as possible. The housing g increased density area, preferably on the site benefiting from the I not possible,within the same town centre area. Burnaby takes the lead in suggesting a density bonus to the developer...Housing provided through the CBB is secured throu.gh.a housing agreement registered on title. The housing agreement includes details of ownership, the value of the bonus, the size of the units, and other pertinent details. Each housing agreement is negotiated separately with the deveioper. In areas where affordable housing is at risk of being demolished for higher priced units, a density bonus program could be created to offer a bonus in exchange for providing replacement housing. Top Impetus Burnaby's four town centre areas are zoned multi-family. Council the supply of low cost housing in these centres, which can suppor (for example, an increase in density from 2.2 to 2.6). In July 1996,the Housing Committee submitted a report to counci rezoning policy for residential developments in the town centres tl added density, in exchange for amenities and/or affordable housir Changes to the Local Government Act in 1997 allowed cities to al manner. Burnaby's CBB was first implemented in 1998. file://C:\Documents and Settings\Michael Murray\My Documents\MJMPersonal\PlanninL, C... 6/5/2006 , 7 Market Housing Affordability 2005 - Chapter 4- Case Study 5 Page 3 of 6 The initiative was carried out in two stages: 1. The policy was adopted. 2. Amendments to the Zoning Bylaw and the Town Centre DE were created: a. The amended Zoning Bylaw referred to the Commut (CBB) policy and outlined parameters for considerin. b. Specific needs for amenities and affordable housing in each town centre area. Top Steps The city is asking non-profit housing groups to submit Expression: for operating affordable housing units in CBB projects. As well, it i identifying gaps in housing and amenities in each of the town cent There are two phases to the CBB: 1. In Phase I,the need for an onsite amenity or affordable hot a.site-specific basis. Existing community plans are amende framework for amenities and affordable housing options, w occurring over time as part of the normal review process. 2. In'Phase II, an onsite amenity or affordable housing is deet undesirable (this phase has not yet been implemented). In developer would be given the opportunity to increase densi to a fund that provides amenities and/or affordable housing the:same town centre. The City of Burnaby rejected using a detailed pro forma plan to a: the density bonus. Instead, council looked at two municipalities us policy, and decided to adopt Vancouver's formula for calculating c Contribution = bonus floor area (in ft2) x market land value (in 9 Valuation of the Bonus In the private market, developers purchase land at market value, c and anticipate making a profit. The value of the amenity received increased value of the property arising from the density bonus. If t share (e.g. 50/50)the value of the extra density with the develope net result would be an increase in property values in properties eli bonus, since land trades at maximum density value. The application of the basic principle—value of amenity or housin, bonus space—may need to be marginally adjusted for a particulai characteristics through a negotiated process with the developer a; . may be some good reasons for encouraging development in one I another. The size of the density bonus, with contributions going to housing 1. A hiaher bonus could be given for: file://C:\Documents and SettingsNichael Murray\My Documents\MJMPersonal\Planninj C... 6/5;2006 Market Housing Affordability 2005 - Chapter 4 - Case Study 5 Page 4 of 6 • Units developed under senior government non-profii programs; • Price-controlled limited-equity market units; • .Units controlied/managed/owned by non-profit housi • Guaranteed rental units with rent control mechanisrr • Housing for those with special needs such as physic disabilities, victims of violence, etc. 2. A more modest bonus could be given to: • Adaptable or special needs units; • Guaranteed rental or time-limited units; or • .A few units of non-market housing in a larger develo .To p Results Twenty-five new rental units in three developments have been cre Community Based Bonus program:four, nine and twelve units reE in two developments are universal design.13 One development is individuals with mental and physical disabilities and includes a uni The units are located in the town centres near shopping and publi residents previously occupied marginal housing, often far from sei offer a great improvement to their lives. Rents are calculated at Y income and go towards strata maintenance fees and upkeep.Any a replacement reserve fund for unexpected maintenance items. Top Costs The annual cost in staff time to administer the CBB is $15,000. Top Challenges • Ensuring affordable housing remains a prominent option wl CBB and that the bonus is not always put toward other ami program gains momentum and the availability of bonus am other municipal departments and entities like the library bo and parks and recreation are advocating for contributions ti It can be difficult to rationalize four units for four household like a skateboard park serves a much larger population.As important to develop principles to guide the discussion reg, versus amenities. Burnaby is currently developing such gui • Ensure that societies operating the units are selected early .stage, to allow input to the developer about the specific ne( population. • There is a concern with the impact of a declining real estat( CBB. For example, if land prices fall, the affordable units ai density bonus could become too costly for the builder to ab M Top file://C:\Documents and Settings\Michael Murrav\My Documents\MJMPersonal\Planning C... .6/5/2006 Market Housing Affordability 2005 - Chapter 4- Case Study 5 Page 5 of 6 -Factors'for Success Bumaby::rece ved assistance to develop the CBB from the.Urban Institute Municipal Liaison Committee. It also studied density bonL municipalities.7.The city has learned from each development using been able.to improve the process as a result. Other factors for suc • Having the right economic climate, In areas or times where building out to the maximum density, this initiative will have e A developer committed to the project's success. Top Lessons Learned Non-profit housing providers have great interest in using density bonus programs like the Community Benefit Bonus. • The legal framework must be clear and include a comprehensive, housing agreement that specifies details down to the type of finishes to be used in construction, especially when dealing with universal design. • The most successful projects use local organizations to administer the housing or a group with experience in the community. :Top . Suitability for Replication While high rises create the greatest potential for the CBB,the prat all housing types with higher densities than townhouse deveiopmf Top Supporting Information Density Bonus as a section in Supplementary Regulations of the Report to Community Planning & Housing Committee from the Dij with recommendations to create the CBB. Information available at http:/iwww.city.burnaby.bc.ca/. Top Contact Information John Foster, Senior Long Range Planner Joan Selby, Social Planner City of Burnaby 4949 Canada Way Burnaby, B.C. V5G 1 M2 Phone: John Foster—604-294-7406 Joan Selby—604-294-7299 file://CADocuments and Settings\Michael Murrav\My Documents\MJMPersonal\Planning C... 6/5/2006 Market Housing Affordability 2005 - Chapter 4 -Case Study 5 Page 6 of 6 Fax:.604=570-3680 johnJost4 city.burnaby bc.ca loan selbv o)bitv..burnaby.bc.ca 11) Material..taken.from the interview and from a report by the Director of Planning and Council,Feb.20,1997,on Community Benefit Bonus(CBB)for Affordable Housin Centre Areas,the Purpose of which was to recommend implementation of Phase I areas. 12) Floor-Area Ratio refers to the amount obtained when the gross floor area of all buil exclusions Permitted in accordance with section 6.20 of the Zoning Bylaw)Is divide 13) "Universal design,sometimes known as barrier-free building design,is the design environments to be usable by all people,to the greatest extent possible,without th specialized design...Universal design recognizes that people have a range of cap; designs of buildings and tools to include this range." htto:Iiwww.wateriooregion.orgisoc/trends/disabilities/design_html Next Part I Previous Part I Table of Contents Go to Housing Policy page I Office of Housing and Construction S Friday May 27,2005 file://C:\Documents and Settinas\Michael Murrav\Mv Documents\NUMPersonalTlannina C... 6/5/2006 .:. Economics Research`Assoclates Project Report Downtown-Density.Sonus and Attainable,Housing.Policy: Recommended Comprehensive Plan Amendment Submitted to Department of Planning City of Sarasota, .Florida Submitted by Economics;Research Associates March 1, 2006 ERA Project No. 15939 (2) 1101 Connecticut Avenue, NW Suite 750 Washington, DC '20036 202.496.9870 FAX 202.496.9877 wvvw.econres.com Los Angeles San Francisco San Diego Chicago Washington DC London New York Table of Zontents Tableof Contents.................................................................................... .......... i General and Limiting Conditions .........................................................................iv 1. Executive Summary......................................................................................... 1 Background........................................................................................................1 Comparable Programs........................................................................................2 Density Bonus and Attainable Housing Unit Requirement Alternatives.................2 Recommended Policy and Comprehensive Plan Amendment...............................3 DevelopmentCapacity........................................................................................5 2. Background ...................................................................................................... 6 Introduction.......................................................................................................6 ::Scope and"Methodology ....................................................................................6 Defining "Attainable Housing" and The Problem.................................................6 Sarasota Housing:Ma.rket Context.......................................................................7 Sarasota Policy..Framework...............................................................................14 Summary ...................................................:.....................................................14 3. Comparable Attainable Housing Programs................................................... 15 Introduction......................................................................................................15 Defining Inclusionary Housing ..........................................................................15 Examples and Lessons from Other Communities ...............................................15 Summa 4. Density Bonus and Attainable Housing Unit Requirement Alternatives....... 20 Introduction.....................................................................................................20 Methodology...................................................................................................20 Development Community Stakeholder Comments.............................................21 KeyAssumptions..............................................................................................25 Density Bonus Without Attainable Housing Requirements.................................31 Density Bonus With Attainable Housing Requirements......................................31 SensitivityAnalysis............................................................................................36 Summary .........................................................................................................38 5. Recommended Policy and Comprehensive Plan Amendment....................... 39 Introduction.....................................................................................................39 Summary of Proposed Policy.............................................................................39 Recommended Changes to Housing Chapter....................................................39 Recommended Changes to Future Land Use Chapter........................................44 6. Development Capacity .................................................................................. 46 Introduction.....................................................................................................46 Existing Dwelling Units and Capacity.................................................................46 Potential Dwelling Units and Capacity...............................................................46 Potential Attainable Housing Units ...................................................................51 Summary .........................................................................................................54 Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page i Appendix A: Participating Stakeholders...................................:........................ 55 Residents/Neighborhood:/Community Representatives..............:....................55 Developers/.Brokers Business RePresentatives.................................................55 PublicStaff....::::..................................................................................................57 Appendix B: .Sarasota:Policy.Framework........................................................... 58 ComprehensivePlan.........................................................................................58 Downtown Master Plan 2020.and Downtown Code.........................................66 Downtown Residential Overlay District (DROD)..................................................70 Attainable Residential Overlay District (AROD)...................................................74 ConsolidatedPlan.............................................................................................75 Sarasota County Comprehensive Plan................................................................76 Sarasota County Zoning Ordinance—.Density Bonus and Affordable Housing Overlay District..... ............................................................................................79 Community Housing Trust of Sarasota County..................................................82 Appendix C: Proposed Attainable Housing Specialist Position......................... 84 Description and Typical Duties..........................................................................84 Knowledge and,Abilities...................................................................................85 Minimum Qualifications.....................................................................................85 Appendix D: PublicMeeting.Comments............................................................ 87 Appendix E:.in-Lieu Fee Options Review............................................................ 89 Appendix F: 'Feasibility.Model - For-Sale Units (Condos)-Downtown Edge (DTE) - Base Case.......................................................................................................... 90 Appendix G: Feasibility'Model - For-Sale Units (Condos) - Downtown Core (DTC) - Base Case.......................................................................................................... 96 Appendix H: Feasibility Model - For-Sale Units (Condos) - Downtown Bayfront (DTB) - Base Case.............................................................................................. 102 Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page ii Index.of Tables Table 1: Population.&Household;Prpjections.for..the.City.of Sarasota, 1990-2025 .................8 Table 2: HUD.Income and Affordability.Definitions.......................:........................................9 Table 3: Household Projections by Household Income, 2000-2015......................................10 Table 4: Average Asking Rents in.the Sarasota=Bradenton MSA, 2005.................................12 . ...... .... ....:....... Table 5: A Comparison of Recent Trend`s'in Mediari:Home Sale Prices and Household Income in the Sarasota-Bradenton MSA............................................................................12 Table 6: Attainable Housing.Construction Need for City;of Sarasota Households, 2002-2025 ..................................................................... ...................................................13 Table 7: Inclusionary Housing Programs in Other Communities...........................................16 Table 8: Affordability Assumptions, Sarasota ......................................................................28 Table 9: Development Profit of For-Sale Units.(Condos) by Zone by Density Without Attainable Housing Requirements, Downtown Sarasota........................................................31 Table 10: Development Profit of For-Sale Units (Condos) in the Downtown Edge(DTE)with Attainable Housing Requirements, Downtown Sarasota .......................................33 Table 11: Development Profit of For-Sale Units:(Condos) in the Downtown Core(DTC)with Attainable Housing-Requirements, Downtown Sarasota .......................................34 Table 12: Development Profit of For-Sale Units (Condos) in the Downtown Bayfront (DTB) with Attainable Housing Requirements, Downtown Sarasota................................35 Table 13: Development Profit of For-Sale Units (Condos) Sensitivities with Selected Density and Attainable Housing Requirement, Downtown Sarasota..................................37 Table 14: Recommended Downtown Density Bonus and Attainable Housing Policies, DowntownSarasota............................................................................................40 Table 15: Recommended Downtown Density.Bonus.and Attainable Housing Policies, Downtown Sarasota (Continued).........................................................................41 Table 16: Recommended Downtown Density Bonus and Attainable Housing Policies, Downtown Sarasota (Continued).........................................................................42 Table 17: Existing Dwelling Units in Study Area...................................................................47 Table 18: Maximum Development Capacity in Study Area Under Current Zoning Regulations ...........................................................................................................................48 Table 19: Maximum Development Capacity in Study Area with Density Bonus.....................49 Table 20: Net Capacity in Study District Under Current Zoning and Proposed Density Bonus 50 Table 21: Maximum Density in Study District Under Current Zoning and Proposed Density...52 Table 22: Maximum Potential Attainable Housing Units in the Downtown Mixed-Use Zones53 Table 23: Downtown Urban Mixed-Use Classification—Correspondence Between Policy Documents and Major Development Standards, City of Sarasota ..........................64 Table 24: Sarasota County Affordable Housing Policy income Definitions ............................80 Table 25: Sarasota County Affordable Housing Policies.......................................................81 Index of Figures Figure 1: Population Change by Age Segment, 2000-2025....................................................9 Figure 2: Percent of Home Sales in the City of Sarasota by Price Range, 2001-2004.............1 1 Figure 3: City of Sarasota Projected Housing Demand by Unit Type, 2005-2025..................13 Figure 4: Future Land Use, Zoning, and Potential Edge Zoning Sites Map, City of Sarasota...62 Figure 5: Neiahborhood Associations, City of Sarasota........................................................65 Figure 6: Downtown Master Plan 2020 Study Area, City of Sarasota ...................................67 Figure 7: Adopted Downtown Zone Districts (September 2005), City of Sarasota.................69 Figure 8: Downtown Residential Overlay District, City of Sarasota........................................72 Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page iii i'. General and Limiting Conditions Every.reasonable effort has been made to ensure that the data�zontained mlhis study reflect the-most accurate.and.timely information possible...These data are believed to be reliable. This.study.A. based.on estimates,assumptions and dtheranformation developed by Economics Research Associates.from its independent research:effort,generalknowledge of theinarltet and the.industry,and consultations with.il ee client and its.representatives. No responsibility is assumed f or inaccuracies in reporting'by the olient;its agent and representatives or any other data source used"m,preparhng or.presenting this study. No?warranty-or representation'is inade by Economics Research Associates that any of the projectedvalues or,results contained in this study will actually be achieved. 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Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Page iv. a 1. Executive Su:mm. ary -Bac aroun The:Sarasota City Manager directed Planningbe partrnen.t staff to.prepare a comprehensive plan amendment reflecting a"density.bonus initiative;for:attainable housing within the Downtown:Urban.Mixed'=Use'land.use`classif cation:. .The City retained Economics Research Associates ERA to assist.wtth this effort. ERA's primary tasks were the following: identify the maxunum number.of."attainable"units that canbe..developed Within the subject area over the life of the plan.- ensure.that the"density incentive is sufficient so as:.to:be:attractive:to theAevelopment:community in order.that.the needed housing.will be forthcoming;:and-develop.an administrative mechanism to ensure that attainable units remain attainable. Based upon conversations with city leaders and residents,:.and a review,.of:housing affordability definitions elsewhere,ERA,.defined housing as`.`.attainable":in its report titled Analysis of.Selected Attainable Housing Policies,dated.August 2005,as follows: targeted to working households earning between:60 percentend:120.percentof Area Median Income.(AMI); affordable,-wherein housing costs consume less than 30 percent of annual gross.income; and.proximate.to a resident's place.of work. Workers in households earning between 60 percent and 120 percent AMI fill the majority of jobs in nearly every sector of the economy,especially in services and retail trade. These households are diverse in character and composition, and may include single persons with or without children, or married.persons, one(or occasionally,both)with.a workforce job. Moreover,members of these households often serve as essential,frontline servers in the economy, such as police officers, construction workers,teachers,nurses,retail salespersons, and waiters. The region's households are facing relatively little growth in wages and rapid increases in home prices. While median household incomes in the city only increased from $34,077 in 2000 to $35.340 in 2005,median home prices escalated from $151.800 in 2000 to $367.800 in November 2005 in the Sarasota-Bradenton MSA. An estimated 14,569 of households in Sarasota earned below 120 percent AMI in 2005, representing 60 percent of all Sarasota households, according to the Shimberg Center for Affordable Housing at the University of Florida. By 2015 this number is expected to increase to 15,317 households earning below 120 percent AMI. Furthermore,an estimated 2,068 housing units need to be constructed in order to meet the anticipated growth in households earning less than 120 percent of AMI during the period 2002 and 2025,which equals 60.5 percent of the total projected construction demand for the City through 2025. As housing becomes increasingly unattainable for these community's residents, they will seek jobs and homes in less expensive locations and Sarasota's economic health and sustainability will be negatively affected. Despite this situation, Sarasota's existing planning policy framework, including the Sarasota City Plan, do not directly address the issue of attainable housing. While a relatively new planning policy,the Downtown Residential Overlay District(DROD),has.successfully led to new residential development in the downtown,it has not resulted in any attainable housing. Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Page 1 - ComP ari bl 'Programs In.grdento establish a:policy:fr. ework for the creation of attamable,housing in Sarasota that is generally consistent with commonly accepted density..bonusand.attainable housing practices elsewhere,ERA researched selected voluntary and mandatoryaffordable housing policies in.other:U.S.communities,particularly.those in. urban locations.-:These affordable housing strategies are often referred to as inclusionary housing policies or inclusionary zoning. The purpose of inclusionary housing policies is:to create.affordable.housing by either: (1) :requiring developers,•to designate:a portion of.development:as affordable residential units; or(2)by providing incentives.that encouragedevelopers to.create affordable housing voluntarily. While inclusionary•housing policies can be mandatory or voluntary,most include incentives to maximize the development of:affordable units that otherwise would .not occur. .These incentives may.include density bonuses,financial subsidies,development fee:waivers, option:to produce inclusionary:units off-site,relaxed development standards, reduced impact fees, and donations of land or fees in-lieu-of providing affordable units. A review of comparable attainable housing programs reveals the following: • Inclusionary housing programs are uniquely tailored.to meet the.policy goals of a community,and strongly reflect the political will of.its residents and leaders. • Inclusionary policies and programs are highly complex. Efficient and consistent _. application of these policies is best served by municipal staff with expertise in the affordable housing field. • Communities that have expanded and strengthened theirinclusionary housing programs in recent years have done so in a time when housing market conditions have been sufficiently strong to avoid or mask any potential constraints to development that regulatory actions can have on a market. It is unclear if or how these inclusionary policies will affect the pace of development in the future. • By and large,these programs serve moderate and low-income residents,rather than .the very low-income population. As such,these programs serve as one tool among many,that a community may use to address affordable housing needs. Density Bonus and Attainable Housing Unit Requirement Alternatives ERA prepared a development feasibility model in order to analyze alternative density bonus and attainable housing requirements in downtown Sarasota. The model is based primarily on ERA's expertise in the areas of-planning and real estate development,with inputs crosschecked with third party data sources as well as developers and real estate brokers active in Sarasota. During this process, ERA also attended meetings with the Sarasota Downtown Partnership,Community Redevelopment Advisory Board, and Sarasota neighborhood representatives to discuss the project and potential policy issues. The development model was used to evaluate the profitability of development in downtown Sarasota under alternative density bonus and attainable housing requirements. Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Page 2 The analysis was done in a step-wise manner,-starting with current.conditions; then with increased.density.and no attainable housing requirements,then with'increased density with . ......: .. attaiiiatilelousingrequiremen. and;finally with`sensitivities to individual feasibility modelvariables: .....::. This-analysis'leads to the conclusion that undercurrent and foreseeable market conditions, even a,signif cant density bonus is unlikely to result in new development of attainable units downtown. . The primary`factorsbehind:this situation are the-high land land construction costs in downtown compared to other areas of Sarasota;both of which have increased significantly in theJast six-months.in Sarasota,which has shad a strong negative impact on development profit. In addition,the rapid pace of-residential sales price increases experienced over the past?few years in-Sarasota appear unsustainable,•with prices beginning:to level off at current levels;this is particularly true of•the condominium market, a large portion of which has been fueled by investors. ERA notes that this situation is a national phenomenon and also is e recognized part of the housing business cycle. On the upside;together these factors may exert downward pressure on land and construction costs over the mid-term. Despite the above conclusion,if developers have some sort of advantage relative to current market conditions iti the downtown,then a density bonus program could be effective in creating attainable housing. Such an advantage could be due to a range of factors, such as reduced development costs(land or construction costs,or even as a function of city financial support or actions),increased sales revenues,or a lower minimum development profit level. In addition, non-profit housing developers may be in a better position to take advantage of a downtown housing density bonus,particularly when combined with other development tools, such.as.below marketinterest rates or low-income housing tax credits. It is also.useful to take a broader view of the situation,in which a density bonus and attainable housing requirement may be used in the future in the downtown when market conditions.have improved. Such a policy could also be considered for application in areas outside the downtown. Recommended Policy and Comprehensive Plan Amendment In developing the recommended policy,ERA sought to find a balance among a range of issues including the following: community interest in providing housing downtown that is available to all residents,not just investors or the affluent; impact of such a policy on the City's housing market;the area economy more broadly;and overall development downtown in the near-and long-term; utility,legality,and financial feasibility of such a policy; overall consistency with and success of similar policies in other communities; compatibility with existing adjacent residential development; and the ability of the City to administer an attainable-housing density bonus program. Based on these factors and on the economic analyses,ERA recommends that the City of Sarasota pursue the downtown density bonus and attainable housing policy outlined below: • Program is voluntary,not mandatory. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Paae 3 1:4DIncreases,:density.ao a maxunum:;of 5001J/acre in the DowmtowirEdge (DTE)and 200 DU/acre in the.Downtown Core.(DTC)and.Downtown'Bayfront(DTB). • Requires 10 percent of the-total unitsfo be::.attainable::unitsnatsthe;:time of sale or rental,which:are affordable.to households.eaming a maximum:average of 100 percent ofMedian Fa7uly.Income(1Vuly(medianhousehold income for a family of.four'in;the"Sarasota=Bradenion.NISA as determined annuallyby the U.S. Department of Housing and Urban.Development)and available to-households ea�.up to::a maximum,of 120 mrcentiVl L • Applies to developments that have 10 or more.units,whether for-sale or for-rent. Attainableunits mustbe,developed:on-site:(no in-lieu fee), dispersed throughout thebuilding;.and with a.size(sq.ft.)andfinishings functionally equivalent to :market:rate:units.:.. • Attainable.units are to be attainable in:perpetuity. • `If an.attainable unit is.sold,a designated organization(e.g.,-Community Housing Trust of Sarasota, Sarasota'Office of Housing and Community Development)has the right of first.refusal;selling owner of attainable unit receives 25percent of profit since purchase(with profit based on current owner's purchase price adjusted for.inflation,owner-equity,owner improvements, closing costs,and commission) to be paid either(i)entirely by designated.,public agency or(ii)if designated public agency chooses not to purchase unit directly,byattainable income-qualified buyer with support as necessary by designated agency or agencies. . • Requests by developers for us of the downtown density bonus will be subject to review by Planning and Redevelopment Department staff as well as public hearings held by the Planning Board and City Commission,with a recommendation made by the former and approval made by the latter. Criteria for approval will be incorporated into the City's land development regulations, including consideration of the criteria specified in Objective 3–Development Review and Approval Process of the Future Land Use Chapter. • In conjunction with the County's program, a third-party affordable housing organization—either Housing Trust or the joint Sarasota Office of Housing and Community Development(OHCD)—will be critical for determining income qualification of households,providing homeownership tutorials;handling resale units,etc. • The City will require at least one full-time experienced housing planner to assist with the following:program implementation and monitoring as it relates to development review;provide consistency in plan review and permitting; income qualification; attainable unit monitoring; and possibly management of attainable housing trust fund. This staff requirement is likely to grow if the program is widely used. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 4 !:S.peeific;policy;language:is also.;proposed.for,.the.Housing:Chapter.:and the Future Land Ilse.Chapter..:;.;.. - '..•..,:... ,....... Development Capacity:: The.three downtown mixe&used zones-in the.stiiiiy:area:provide:a finite amount of land :. .... .- available for development. Under current zoning regulations,`the..maximum development capacity;ini. the study area totals:.9,327.dwelling un ts...(excluding use of the Downtown Residential Overlay District or DROD) Assuming the recommended density bonus policy were enacted (with similar to. e current DR!OD),maximum-residential development capacity Would.increase to.a::total:.of.28,90.1.dwe1linaamits. This:represents a potential maximum net capacity increase of 19,574 dwelling units versus`the number of units allowed under.the current zoning(excludingAhe'-DROD). 'The maximum average density in the study area would increase from 34.4 DU/acre under current zoning(excluding DROD)to 106.7 DU/acre under the proposed zoning.Ili is important to note that such increased density throughout the downtown is not a given for all sites due to a variety of factors, including market'conditions,parcel specifics,and other factors. Furthermore, individual proposals would be reviewed on.a:case-by-case basis:to.determine if the proposal is.appropriate.for.the-specific.:location.- Due to the large number of factors influencing the specifics of each development project,it is not possible to forecast how many of the potential attainable housing units will be built. However,based on experience in other communities with voluntary density bonus and attainable housing policies.the number of attainable units actually built is likely to be significantly lower than the potential maximum,perhaps on the order of 10 to 20 percent of the maximum,which could result in approximately 230 to 470 attainable units in the downtown. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Paae 5 i - r�I �. 2i.12ackgro:und ... . ..:.: ... .. .. Introduction The City of Sarasota,Florida-:retained.EconomicsResearch Associates (ERA)of Washington,D.C.to assist with developing an amendment to.the..City's Comprehensive Plan°:''The proposed amendment would address attainable housing through a density bonus .. . . .... .. prq focused on'.the:Downtown.Uibati Mixed Use, land use classification. t' � �'.; The:amendment is.designed to contribute to`a larger effort by the city-and Sarasota County housing to createpolicies to address.the housing needs.of its residents and workers. ERA's work on the Comprehensive Plan Amendment.is a.follow up to.a.previous attainable housingproject for the City of Sarasota. The result of that work was a report titled Analysis of Selected Attainable Housing Policies,dated August 2005. The study examined five;.potential.attainable housing policies,including an attainable.housing requirement with a corresponding density bonus,with'three areas of the.city examined, including the downtown. Scope and Methodology ERA's major tasks for:this study were the following: Identify.the maximum number of attainable units that can.be.developed within the Downtown Urban Mixed-Use land.use.classification and corresponding zoning (Downtown Bayfront,Downtown Core,and Downtown Edge)over the approximately 25-year life of the new comprehensive plan,which is to be adopted in 2007. ■ Determine what density incentives would be sufficiently attractive to the development community to ensure that attainable housing would in fact be built. ■ Define an administrative mechanism to ensure that attainable units constructed through a density bonus program will remain attainable. In order to complete these major tasks,ERA undertook the following activities: regular communications with City personnel;face=to-face and telephone interviews with community stakeholders; analysis of relevant attainable housing policies in other communities,particularly best practices;preparing and revising draft documents; and attending public meetings/hearings. Defining "Attainable 'Housing" and The Problem The City of Sarasota has become increasingly concerned in recent years about rapidly rising housing costs and the ability of its long-time and less affluent residents to find decent.. affordable housing(for the.:purpose of this report,referred to as"attainable housing")in the city. Based upon conversations with city leaders and residents, and a review of housing affordability definitions elsewhere,ERA defined housing as"attainable" in its August 2005 report as follows: . ■ Targeted to working households earning between 60 percent and 120 percent of area median income (AMI); Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Paae 6 t ■ Affordable, wherein housing costs consume;less,than30.-pe cent of annual gross income; and, Proiumate:to.a.resident':s.;place.of.work.: According tothe U:S: capital markets withdraw from real.estate.investments;;mortgage.interest rates creep up, and the housing supply begins to catch-up with or.even.exceed demand.'.To better understand the character of housing affordability in the City of Sarasota,ERA reviewed key market indicators to provide a snapshot of the current housing market. Population and Households Population change is an important variable in determining the demand for housing. A review of the demographic characteristics of the City of Sarasota shows that steady population growth is projected over the next 20 years,as shown in Table 1. Table 1: Population&Household Projections for the City of Sarasota,1990-2025 Year Population Households 1990 50,961 22,886 2000 52,700 23,409 2005 54,338 24,172 2010 55,293 24,788 2015 56,340 25,498 2020 57,446 26,224 2025 58,469 26,956 Change, 1990-2000 3.4% 2.3% Change, 2000-2025 10.9% 15.2% Source: Shimberg Center for Affordable Housing Between 2005 and 2025 the share of residents over age 65 is projected to increase by 35 percent. Other age cohorts are expected to stay relatively flat, as shown in Figure 1. This reflects a larger national trend, as the Baby Boom generation enters into retirement. However,the number of people over age 65 represents only a quarter of the total population. Overall,the increase in population and households is expected to translate into greater housing demand in the City of Sarasota over time. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 8 f - Figure 1.To pulation'Change'by AgeSegment,2000-2025. . .25000 20000 . 15000 10000 5000 to— Under Age 35 Ages 3 5-64 '—•A—Acte 65 and Older 0 1990 2000 2005 2010 2015 2020 2025 Year Source: SnirnOerg Center for Affordable housing Income Another important variable in assessing housing needs is household income. Each year the U.S. Department of Housing and Urban Development(HUD)establishes income thresholds that determine which households are defined as being low, moderate, or middle income (see Table 2). These income thresholds,referred to interchangeably by affordable housing specialists as median family.income(MFI)or area median income(AMI),are adjusted according to geography and household size. Table 2: HUD Income and Affordability Definitions Household Income As a Percentage of Income Definitions Area Median Income Very Low Income 30%AMI and below Low Income 31%- 50%AMI Moderate Income 51%- 80%AMI Middle Income 81%- 120%AMI Source: HUD. According to the Shimberg Center for Affordable Housing at the University of Florida,in 2005 an estimated 14.569 households earned below 120 percent of AMI,representing 60 Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 9 percent of all Sarasota households. By 2015 this number is°expected to:increase by 748 households:to a..total of:15,317.households earning below.120,percent AMI..as shown in Table 3. Table.3: :Household Projections by Household Income,2000-2015 :Households (2000) City of Sarasota Sarasota County Very Low Incoine;';30°7o'AMI and below 1,965::::`•`.';':;:::: -:8%'_' 11,510 8% Low Income ;;;3::1:9%;50%AMI 2,486;;. ;;;'.:' :1;1NO 14,411 10% Moderate Inco.me:';'.519/0,'' `80%AMI 4,331:;'::;`:;::';;;;'"19%:; 26,164 17% Middle Income'';;;:< f8:-1"%`:;:'7.'20%AMI 5,38.1.':::::;:';,`:?:;23% 33,264 22% Upper Income.::'4 >'1:20%AMI 64,563 43% Total 23,409 "100% 149,912 100% Households(2005 estimate) City of Sarasota Sarasota County Very Low Income 30%:AMI and below 2,033 :8% 12,606 8% Low Income 31%-50%AMI 2,560 11% 15,739 10% Moderate Income 51%-80%AMI 4,452 18% 28,430 17% Middle Income 81%- 120%AMI 5,524 .23% 35,948 22% Upper Income > 120%AMI 9,603 40% 70,531 43% Total 24,172 100% 163,254 100% Households (2015) City of Sarasota Sarasota County Very Low Income 30%AMI and below 2,126 9% 14,657 8% Low Income 31%-50%AMI 2,692 11% 18,474 10% Moderate Income 51%-80%AMI 4,686 20% 33,347 17% Middle Income 81%- 120%AMI 5,813 25% 42,017 22% Upper Income > 120%AMI 10,181 43% 82,134 43% Total 25,498 109% 190,629 100% Source: Florida Housing Data Clearinghouse,Shimberg Center. In order to understand whether these households face challenges in finding affordable housing, it is necessary to understand current home prices and rental rates. The following section explores the supply side of Sarasota's housing market. Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Page 10 .. 4' Housing.Prices Over the-past sixyears borne prices in the Sarasota-,Bradenton'MSA have.escalated by 142 percent,rising from a median of$151,800 in 2000 to$367,800 in November 2005 according to the Sarasota Association of Realtors. .A closer look at home sales in the City of Sarasota demonstrates"dramatic upward shift in'home sales.as shown in Figure 2. Figure 2: Percentrnf:Horn: e Sales in the City of Sarasota:by Price Range,2001-2004 ..... :........ .. ' 100% .. ::...::'.......:....... go% Ell 80% "f r� 70% 6090 a::: « •, a::"- ai.: 5090f:Vrh;i�"riyv':�.Y=+'`; �. 44��.':i.,}•.±I_ry:i;. S�:.s�.,4was�.^GY:V�:Kt',i�: 10% 4.rlk.�r:(h'a.,:1.:,5:•v�ihWn ':1^`:fff:^^^ ::i :2001 - 2004 ■<$40,000 El S40,000-$79,000 OS80,000-5119,999 0S120,000-5159,999 MS160,000-S 189.999 0$190,000+ Sources: SCOPE Scope Afiordable Housing Study,2002 and the Sarasota Office o1 Planning. Rental Rates The regional rental market presents a less alarming picture than the for-sale market. According to a survey of rental rates conducted by the Sarasota County Office of Planning, housing units were still relatively affordable at the time of the survey,particularly for smaller units, as shown in Table 4. However, anecdotal information suggests that recent condo conversions may be reducing the rental housing supply and that owners of rental properties are facing escalating property taxes,which will likely be passed on to their tenants, or will create an incentive to convert the units to condos. .Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 11 6 Tabk:4::Average.Asking Rents in1he:Sarasota=Bradenton.MSA;2005 Affordable AparfinentSize .:Asking Rent' Rentz HH.Type Efficiency;::`.: $722 :::;.':,". $783:.:::..;: ..,..:person HH.:,.:;. . .. 1-bed90;m $755.;::.`' :`. $783 ;:;' P :1.: erson HH`.::. 2-bed. bm $907: $895 :person.HHs:1:_; 3-bedroom:ormore,:a;'<,,`. $1,089 ;.'':.` .$1,006''.:;.;'' 3 person HH 'For North'Sarasota Couni``"x200" 7 At 30W6f:�gross income=baseilton MFI for HFi;iype. Sources:'sHUD;Sarasota County Office of Planning,;.. Housing'Needs':;.: The region's households are facing relatively little:growm in wages and rapid increases in home;prices. A comparison of.me'dian residential?:sale prices;and household incomes . demonstrates that home-values are:far.outpacimgincome growth;(.Table 5). Table 5: A Comparison of Recent Trends in Median Home Sale Prices and Household Income in the Sarasota-Bradenton MSA Median Single-Family Median Household Income Year Home Sale Price City County 2000 $153,700 $34,077 $41,957 2001 $156,000 - - 2002 $158,000 2003 $174,500 - - 2004 $224,100 $35,340 $50,811 2005 $305,400 - Change 2000-2004 46% 4% 21% Sale price as recorded every year in March. Source: Florida Association of Realtors;ESRI Business Information Solutions;Economia Research Associates. Between 2005 and 2025 total housing demand in the City is projected to increase from . 25,545 units to 28,448 units for permanent(non-seasonal)households. As Figure 3 illustrates,multi-family housing demand is estimated at 11.595 units in 2025, comprising 40.7„percent of total demand. Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Page 12 Figure 3:t City.of:Sar.asota Projected.Housing Demandby.Unit Type,2005=2025 30,000 ■Mull-"ll_iamliy:I 25,000 20.000 .!'l ,C 10,000 11 5,000 ?• ,'t 1 '2005.. 2010'• :'2015 '2020 " :2025 . Year Sotnce'Shxnbe,g CeMn for AliaWblebwnq Between 2002 and.2025.an.estimated.2.068 housing units that would need to be constructed in order to-meet the anticipated.growth in households earning less than 120 percent of AMI,according to the Shimberg Center for Affordable Housing(Table 6). This represents 60.5 percent of the total projected construction demand for the City through 2025. Table 6: Attainable Housing Construction Need for City of Sarasota Households, 2002-2025 Household income as %of AMI 2002-2005 2002-2010 2002-2015 2002-2020 2002-2025 <20% 22 52 85 121 157 20-29.9% 18 43 71 102 135 30-39.9% 24 56 94 134 177 40-49.9% 27 63 104 147 192 50-59.9% 29 69 113 160 207 60-79.9% 58 139 231 327 423 80-119.9% 109 259 426 602 777 Total Households < 120%AMI 287 681 1,124 1,593 2,068 All Households 476 1,133 1,871 2,647 3,418 Source: Shimoera Center for Affordable housing Economics Research Associates , City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study PaQe 13 04 fmplicatloni4&AtWhible Housing in:the'City,ofi Sarasota While the lowest=income households face the most severe'housing burden.and will oontinue to moderate and middle=.income;hotiseholds are.faced with a growing attainalile housingproblem. :'Current;publicly-funded:housing.assistance..prograrns are tied to HUD definitions,and these programs-focus.on households•;eaming below 80 percent of ANTI;withmmost-:assistance.goinglo households at or below 40:.percent of AMI. Consequently;there are no public:assistance programs in:place:that can assist workforce households to find attainable housing. Sarasota Policy Framework In addition to understanding the Sarasota housing market and the downtown's housing capacity,itis useful to review the City's planning and housing policy framework. This provides context for the:potential development of new attainable housing policies in the downtown.%A review of the city.and county.housing and planning policies is given in Appendix.B:.Sarasota Policy Framework. Summary The affordability of housing is recognized as a growing problem in Sarasota,particularly in the case of workforce households with moderate incomes,such as police-officers,nurses, construction workers,retail salespersons,waiters, etc. As housing becomes increasingly unattainable for these community's residents;they will seek jobs and homes in less expensive locations and Sarasota's economic health and sustainability will be negatively affected.. Despite this situation, Sarasota's existing planning policy framework,including the Sarasota City Plan,do not directly address the-issue of attainable housing. While a relatively new planning policy,the Downtown Residential Overlay District(DROD), has successfully led to significant new residential development in the downtown,it has not resulted in any attainable housing. However, efforts are now underway both within the city and the county to more directly and effectively address the issue of attainable housing. As a result,the city has requested assistance in developing attainable housing policy specific to downtown Sarasota and the remainder of this report is focused on this effort. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 14 a... . 3.,..:.:COM'Parable:iAttainab:le:Housing Programs ►ntroduction - ERA:researched selected:voluntary andandatory,aff6rdable housing policies in other U.S.'communities;.particularly_:those.:in:.urban locations'.that'offerbenefits such as a density bonus. The:purpose of.this'research:was to establish,the larger policy'.:framework for creating.an attainable-;housing program'.in'the City of Sarasota that.is.generally consistent with commonly-'accepted;density bonus:andattainable housing practices elsewhere. These affordable housing strategies are often referred to as inclusionary housing policies or inclusionary zoning. Findings of this research are presented in this section. Defining:lnclusionary Housing The'purpose.of'inclusionaryy housing policies.is to create affordable housing by either: (1) requiring.developers to designate a portion of development as-affordable residential units; or(2)by providing incentives that encourage developers to create affordable housing voluntarily. While inclusionary housing policies can be mandatory or voluntary,most include incentives to maximize the development of affordable units that otherwise would not occur. These incentives may include density bonuses;financial subsidies,development fee waivers, option to produce inclusionary units off-site,relaxed development standards, reduced impact fees, and donations of,land or fees in-lieu of providing affordable units. Examples and Lessons from Other Communities Characteristics of selected affordable housing programs in other communities that offer a density bonus are provided in Table 7. As the table demonstrates, inclusionary housing policies address a complex interplay of variables, and parameters can vary widely: • Target Income Levels: between 30 percent and 160 percent of AMI,but generally within the range of 60 percent to 100 percent of AMI. • Threshold(applicability): three (3)units up to all residential development, typically on the order of 10 to 50 units. • Required Set-Aside(the proportion of units that must be affordable): six percent to 70 percent,with most in the 10 percent to 25 percent range. • Tenure: ranges from none specified to perpetuity, although most fall within the 10 to 30 year range. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Paoe 15 mc = _ �1 Ci ru ta 0 D:in 3 .. i:.{:.2.-F 3 o o w E vai 2` •c o o° .° o a ; 2'`.:w... p a Q v..t, o-7, o.`.� .>..O >. .w.... I L IQ > c v EU r p � « a D c ° a n v .+m p•c CO a rn a w ^ •c. c is Ln cr D _ L q ti w o o Q o 'ry m m S 2- E GI O E a N o.m c• � n; � v aci W. _ o �0 Iz a o 6 ^ � c iv cc ZR ci r E yry i o c `o in in vi o E o'- ^: Eo 0 c o C Ti v, tA i a� c rn— c o a E _ - - c•❑ - - - E OO � ^ �u A N w E S m voi m ro is v o cc ^ f6 a frn u " =:L. N h c N _ .. c ::. Cno v 117 .2 ma D'.a 12 ro 76 0 Lu c6.: co n o _ D O M o c v t cIL c c o0o co_ D u �I�" .__ O c c-D o = c m o a o rn " D - O = c! ID O? O �y 0 D 0 R a C p 2 Qt C•� o cSP U _ — �/ W D.a_ N V D _ c o .- u Q o o o Imo, I^ 3 v of — cm tn v 2 Y E E o r vl LM - = L :�v�i•-m Lr) .Lu:d Perhaps what is most:clear:from the•review:of.inclusionary.housing programs in other communities.is that the specific characteristics ofan inclusionary housing policy can be tailored to.the specific needs of a community. This research'also revealed the following: :1. 'Inclusionary.housing poli6es-we1ighly.sensitive to:market conditions. Communities that maximize the effectiveness oftheir inclusionary housing programs include all of.the following elements: • Strong housingmarkets: ::The.:demand.for housing.units is high and supply is low,providing.optimal:conditions.for profitable development. • Incentives:.the.additional costs of:developing affordable units is offset by incentives,available alone or in combination, such as a density bonus,reduced parking requirements,Tax Increment Financing,fee waivers,and expedited P. rmitting. • Mandatory participation: Developers must provide the affordable units and conditions are such that required for-profit developer returns on investment can be met or exceeded. 2. Communities refine their affordable housing policies over time. Recent trends have been toward expanding the provisions of inclusionary zoning-related policies, including: _.. • Expanding the income eligibility of households to include moderate and middle-income residents(typically those earning between 80 percent and 120 percent of MFI). • Reducing the minimum threshold of development(project size) at which affordable housing is required. • Converting voluntary to mandatory programs. • Expanding the required time span of affordability. 3. Urban communities are struggling to successfully create on-site affordable housing programs within the context of high-rise,luxury condominium development where high condominium fees can significantly impair the affordability of a unit.Among the policies surveyed,it is common for condominium association fee increases to be passed along to low-income households absent any relief. Among the communities addressing this issue: • Cambridge,Massachusetts works with the developer to establish an initial condo fee that is proportionally lower than the market-rate units.As condo fees rise over time,the affordable unit share increases at the same rate as market rate units. although the affordable unit condo fee continues to be lower overall. • Montgomery County.Maryland offers an in-lieu fee option. According to the manager of the County's Moderately Priced Dwelling Unit Program all of the Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Page 18 high=rise.condo:developers have opted.to.pay.:thedn-lieu.fee,rather than to create.:.t a.untts on-stte.::: . ..,. . • San Francisco, California uses an expanded housing expense assumption of 33 percent:of:grossdincome.(as:opposed..to.a.standard 30 percent),which includes condominium fees:: . . • Boulder, Colorado established"livability guidelines"stipulating that the affordable;units be"functionally equivalent to.market rate units,but allowing developers:to reduce costs.on.affordable units.by substituting lower-cost finishes such as laminate.rather than granite countertops.However, this creates a significant administrative burden.for the city and the developer. Summary A review of comparable attainable housing programs reveals the following: ■ Inclusionary housing programs are uniquely tailored to meet the policy goals of a community, and strongly reflect.the political will of its residents and leaders. ■ Inclusionary policies and programs are highly complex. Efficient and consistent application of these policies is best served by.municipal staff with expertise in the affordable housing field. ■ Communities that have expanded and strengthened their inclusionary housing programs.in recent years have done so in a time when housing market conditions have been sufficiently strong to avoid or mask any potential constraints to development that regulatory actions can have on a market. It is unclear if or how these inclusionary policies will affect the pace of development in the future. ■ By and large,these programs serve moderate and low-income residents,rather than the very low-income population. As such,these programs serve as one tool among many, that a community may use to address affordable housing needs. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Paae 19 ensty}Bo.nus:and-:-�4ttanable:#lousing'Unit °Req uirem+en# Iternatives ;;In.tro.ducti.on This report section::detailsthe pararneters'for'residential':development'in the downtown Sarasota. This includes testing of alternative density bonus and attainable housing unit policies using a development.feasibility model. Methodo/o 9Y :As.noted previously,:ERA.previously completed.a study.ofpotential:housing policies for the City of.Sarasota;'titled Analysis.of.Selected Attainable Housing Policies, which was completed.in August 2005. For this.study;a.preliminary development economics model was prepared by ERA and based,primarily on our..ezpertise.in the fields of planning and real estate:.development. .This model;was..thenrefinedto:more.accurately.reflect the particulars of development in Sarasota by'.obtaining.additional information through discussions with.a number of developers active in.Sarasota. This model covered three geographic areas of the.city, one of.which was the entire:downtown. • The development model from the previous study had the following limitations: some of the development parameters were outdated and in need of updating due to significant changes.that,occurred in the last six months(e.g.,land costs, constructioncosts,financing terms,and sales prices);a limited number of developers were.consulted;and the downtown was treated,as a single area, instead of addressing each-zoning districts separately in the model. As a result of these limitations,for the new study of.a.possible.downtown density bonus and attainable housing requirement,ERA prepared a more detailed development model. This model is again based primarily-on ERA's expertise in the areas of planning and real estate development. In order to ensure that the model accurately reflected recent market conditions and trends in downtown Sarasota,the model inputs were crosschecked with third party data sources(e.g.,RS Means,Marshall and Swift). In addition,ERA had face- to-face interviews,'telephone interviews, and email correspondence with developers and real estate brokers active in Sarasota. During this process,ERA also attended a meetings with the Sarasota Downtown Partnership, Community Redevelopment Advisory Board, and Sarasota neighborhood representatives to discuss the project and potential policy issues (see Appendix A: Participating Stakeholders). The main purpose of directly involving the development community and neighborhood representatives was to gather a wide range of informed input into the development model in order to make it as realistic as possible,thereby ensuring that the results of the density bonus and attainable housing analysis accurately reflect current and near-term conditions in downtown Sarasota. The other purpose of the review was to gather opinions about the potential downtown density bonus and attainable.housing effort from development community stakeholders. Note that the development model is exactly that,a model,which is the most accurate representation of development economics that ERA could develop based on the combination of our experience and judgment as well as the resources and information Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 20 available- It issintended:tomrovide the.City_.U.Sarasota:leaders;,staff;residents, and business community with an indicatioii:-as:.:to tbe:effectiveness:gf.uahous,-potential density bonus and attainable housing alternatives in a specific:area;(downtown=Sarasota) and under certain.conditions. As with all-models, it is not a guarantee!tliat the'conditions will remain constant;.nonthat the:.projected values•or,results.:contained:in:tlus-study will,actually be achieved: a ERA recognizes that the validity of the feasibility model findings below is based on the assumption that the development inputs and calculation methodologies.have been correctly specified. We acknowledge that in the case of a specific developer,parcel, and development;the niputs and/orcalculation methodologies:-are likely to Vary-from those specified'below. This will iesult-in development-7ofit levels that are.higher or lower than indicated by ERA's-1easibility mode.Land may even resulf:'in a rational:developer choosing to bi ild even when our::feasibility model `indicates that.they won't. 'Nevertheless,by using the combination of ERA's professional judgment and expertise;1plus information from the development community,ERA believes,that the feasibility model findings provide useful and reasonably accurate guidance:to.the community about the effectiveness of a density bonus and attainable housing requirements. Development Community Stakeho/der:Comments .Before reviewing the key inputs to.the feasibility model,it may be useful to consider a summary of the opinions expressed by the development community stakeholders(see Appendix A: Participating.Stakeholders). Note.that the stakeholders were assured in advance that their specific opinions and development economics information would be kept confidential on an individual basis,thereby enabling them to speak more freely and providing a more accurate information in the aggregate. The interviews were divided into two major parts. The first part focused of general Sarasota housing trends and policies,while the second part focused on Sarasota development economics and was particularly concerned with the draft development pro forma. Due to the broad nature of the material as well as the large number of questions and interviewees, it is only possible to provide a brief summary of-the comments. Note that ERA is very appreciative that so many members of the development community in Sarasota were willing to share their time,opinions, and information with ERA and the City of Sarasota. This input is recognized as vital to the development of an effective attainable housing policy. General Trends and Policies In terms of the general Sarasota housing trends and policies,the following comments received were received: • Need For Attainable Housing: While all interviewees agreed that there is a strong need for attainable housing in Sarasota and throughout the county,many were skeptical that this could be accomplished downtown due to high development costs,mainly as a function of land and construction prices. However, a few interviewees expressed strong support for the idea of attainable housing downtown Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 21 in order-to-increase.the level of:activity.:and diversity.in the downtown, and to reduce distances traveled by moderate=income workers:to downtown. • Voluntaryvs.Mandatory: A strong majority of the.interviewees stated that attainable housing and offsetting density bonus should be voluntary. • Mixed.or Exclusive: ,Opinions werefairly evenly divided as to whether or not attainable housing units should.be required to.be mixed:into a building or could be provided in-RItemative.designs,such:as:concentrated.within the building(e.g.,on lower.:floors),in.an.adjacent building,on the.same site,or even developed elsewhere. Those,against a requirement.to mix them throughout the building were concerned with the impact on the marketability of market rate units,particularly high-end market rate units. • On-Site/Nearby /In-Lieu Fee: Most.interviewees.stated that the provision of attainable housing units or their equivalent(in the form of an in-lieu payment) should be flexible. As noted above,those against a requirement to provide them on-site were concerned with the impact on.the marketability of market rate units, particularly high-end market rate units. Skepticism was also again expressed as to the economic efficiency of developing attainable units in the downtown versus other locations. The payment of an in-lieu fee was favored by most interviewees, although several opposed this idea and noted that it was unlikely to result in the stated policy goal of attainable housing downtown. • Minimum Development Size: Nearly.all interviewees said.that there should be no minimum development size before application of an attainable housing requirement,except as a function of the required percentage. For example,if 10 percent of units were required to be attainable,then a minimum development size of 10 dwelling units was appropriate. • Maximum Density.Bonus: Opinions varied widely as to the maximum density bonus. Those at the highest range favored the Downtown Partnership Attainable Residential Overlay District.(AROD)proposal (i.e.,up to 100 DLJ per acre in the Downtown Edge (DTE)and 200 DU per acre in the Downtown Core(DTC) and Downtown Bayfront(DTB)). However,many noted that this level of density was unlikely to be achieved due to site and development constraints,particularly frequently encountered site size and configuration issues as well as the loss of ground floor and first floors to other uses(e.g.,retail, offices,parking), parking requirements, and story limits(instead of height limits). A number of interviewees suggested that the maximum density should be a.function of adjacent development and what the community wants in the area. • Percentage Attainable Units: The interviewees were fairly evenly split here between those that(i)provided a specific number or range and(ii)those who were unsure what percentage of units should be required to be attainable in return for a density bonus. For those that provided a specific number or range,most said that between five and 20 percent of the total dwelling units should be attainable units, with 10 percent most frequently cited. These interviewees often stated that they Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Page 22 had.heard;that.similar numbers mere re'quired'in.other.-communities. However, those that:declined to give-a number or range,often Stated that the issue would have to be studied here more carefully. A few also said that there should be no requirement. • Attainable Income Levels: Most of the interviewees stated that incomes in the range.of:100 to'120 percent of the Median.Family Income(MEI)were appropriate given;the.High cost of development in'.the downtown. However,there were also a number of interviewees that suggested:that number:be lower in order to target households in need,while others that:suggested higher in order to support project economics and to support project marketability. • For-Sale vs. For-Rent: Nearly all;interviewees said that there should be no restriction as.to whether the attainable units are for-sale or for-rent,that this should be left up to the developer to decide. • Term: Answers varied widely on the issue of how long attainable units should remain attainable,with some very specific and extreme answers to complete"don't know":answers. Most:interviewees:that that in terms of for-sale attainable units,a period of five:to ten years mas sufficient,with a.portion of.the increase in value going to the unit owner(say.25 percent)and thexemainder(say 75 percent) going to a public agency for additional attainable housing development(i.e.,the land trust model). A few interviewees stated that for-sale units should be held in perpetuity,while others said that it should be a one-time restriction for a pre- defined period,consistent with the Downtown Partnership Attainable Residential Overlay District(AROD)proposal. The issue of how.to monitor and administrate restrictions was raised by numerous interviewees. • Minimum unit Specifications: About half of the interviewees said that the minimum unit specifications(e.g., sq. ft.,number of bedroomsibathrooms, finishings) should not be given for the attainable units,but left to the developers to determine. However,the other half provided figures,ranging from a minimum of 600 sq. ft. for a studio/one-bedroom/one-bathroom attainable unit to 1,300 sq. ft. for a two-bedroom/two-bathroom attainable unit to a four-bedroom/two-bathroom 1,800 sq. ft. attainable unit. Several interviewees noted that downtown households were likely to be smaller in size than non-downtown.households. • Frequency of Review: Most interviewees answered that the review of the attainable housing policies should take place between every year and every five years. Several noted that the program should be reviewed more frequently at the beginning to ensure that the program is functioning as intended. • Other Attainable Housing Mechanisms: Almost all interviewees cited one or more of the following other attainable housing mechanisms,many of which they said should be combined with the density bonus program: real estate tax deferral/abatement; in-lieu fees; development on public land(i.e.,free land); use of Community Redevelopment Authority (CRA)Tax Increment Financing (TIF) funds;increase building height(change city code from stories to height); city Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Paae 23 MM funding':for-paiking and/orinfrastructure;development permit and fee reductions; expedited-approval process and,co-developmentusing county housing trust funds/management: •.... New-Downtown:Housing:Developments::Many.ofthe.interviewees are involved in developments:recently.::completed,.under.construction•orplanned in the downtown. They were very positive about the developments,although a number of:the.interviewees commented on the high sales-prices for the units,leading to a lack:of diversity.:.: • Attainable Residential.Overlay,District(AROD): .Most of the interviewees were very familiar with and support the.AROD. • County Housing Trust/Community Land Trust: Most of the interviewees were not aware of the particulars of the County's activities,but those who were thought that it was a good idea. • Other Comments: The interviewees provided a wide range of other corriments, with the following reoccurring themes: o Increase city staff knowledge regarding development economics and attainable housing policies/programs. o Increase areas in which the density bonus and attainable housing requirements policy apply. c Review attainable housing programs elsewhere.for what works and apply it here. o Land and construction costs are so high in the downtown that attainable housing should be done elsewhere. o The downtown development codes need to be changed from the number of stones to building height. o Allow reduced development standards for attainable units: sq.ft.,number of bedrooms,parking spaces,and finishes.. Development Economics Following the discussion of general attainable housing policy issues,interviewees were asked to discuss development economics specific to downtown Sarasota. Many of these comments were very specific in response to a preliminary draft development model prepared by ERA. While these responses were too specific and numerous to present here; the following broad development economics trends which have a significant effect on attainable housing were noted: • Costs: As.noted in ERA's previous study, land costs are particularly high in the downtown compared to other areas of Sarasota. Furthermore,land costs and construction costs,both of which strongly affect development economics, have Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 24 I both increased,signif cantly in.:the.::last-:six.. ionths.in:'.Sarasota and has had a strong negativ.e:.impact on-development,pr:ofit. ERA,not es that this situation is a national phenomenon and is a recognized.part of the;housing:business cycle, although construction costs have been particularly impacted in the Southeastern U.S. following:hurricanesXdtimd-and Rita: This:situation may moderate somewhat in . the mid-term(two-to five•years)due to sales price trends: • Sales:Prices: The.rapid:pace ofresidential:sales.price increases experienced over the past few years in Sarasota appears unsustainable,with prices beginning to level off at current levels, with even some:price depreciation possible. This is particularly true bf the condominium market;:a'large.portion of which has been fueled by investors. Again'-ERA-notes`that this situation is a national phenomenon and also is a recognized part of the..housing business cycle. This is likely to result in longer periods to sell units and:increasing supply for sale as projects under construction are completed. As noted above;this may exert downward pressure on land and construction costs over the mid-term. • Return Level: Most of the development stakeholders.stated that under current conditions, for-profit developers would require a development profit(measured as sales revenues.less developmentcosts;.divided by development costs) of 25-30 percent in the Sarasota area. This is also known as the minimum hurdle rate and includes both equity and debt financing. ERA notes that in addition to accounting for the cost of developing:a specific project,the required development profit also reflects the level of risk assumed by a developer. In ERA's judgment, based on the expected slowdown in development due to the increasing development costs and flattening sales prices noted above,developers will be willing to accept a lower development profit in the near to mid-term of 20.0 percent. Key Assumptions For each of the three zones under consideration,Downtown Edge (DTE),Downtown Core (DTC), and Downtown Bayfront(DTB),a feasibility model was developed based on ERA's general expertise in the area of residential development and Sarasota and zone specific information provided by the stakeholders. While the development characteristics and methodologies may vary significantly from specific examples due to wide variations in site and time specific situations, they are considered by ERA.to provide a broadly accurate picture of current base case development economics in the three zones. Note that the base feasibility models assume current market conditions(i.e.,no density bonus and no attainable housing requirements). Affordability The starting point for an analysis of attainable housing is what various households can afford to pay for housing,which is a function of household income. The U.S. Housing and Urban Development Department(HUD)annually sets income limits for the Metropolitan Statistical Areas(MSA) and Non Metropolitan Counties level. These income limits are used to determine eligibility for federal housing assistance and other assistance programs. The primary figure determined by HUD is the Median Family Income (MFI),which is the Economics Research Associates City of Sarasota 'Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Paae 25 �1 household�income fol-a�•family:of,:four:''As`a'function'of.tlid'vN FI for;atamily of four,HUD also>deterrnines other income:limitS >Sudhas:30.0:.percent MFI,Uery.Low=lncome (50.0 percent MFI),and Low.Income (80.0 percent MFI). For the.purposes o f this study and recommended for.use in the development of the downtown Sarasota•density`.bonus=and.:attaindble housing.policy,ERA has•utilized the Mediae F.amily:.'Income(WI)f6f a'family of•four-in.the Sarasota-Bradenton MSA. In FY2005;theWMmas'$551.900:00 fon(effective February 11,2005). Use:of.:the NIFI for,-a;family.of.four as the':basis ofthe:attainable housing.calculations, as opposed to the household income for a smaller household income,maintains parity in the calculations with federal and other housing program. It addition,it simplifies the calculation'of.qualifying households. Furthermore,it also is probably a more conservative figure due to.the.likely°smaller household size in downtown Sarasota than in the entire Sarasota-Bradenton MSA. This is due to the.generally smaller household sizes in downtown areas versus larger urban, suburban,and ex-urban areas. However,note that this is taken into account with regard to the average dwelling unit size used in the calculations(see below). Applying.the attainable housing parameters specified by the City of Sarasota,which are 60.0 percent to 120.0 percent of WI,the qualifying attainable household income range is $33,540.00 to $67,080.00 in FY2005 (see Table 8). The next step in estimating affordability is to determine the maximum allowable monthly housing payment by maximum attainable household income. The most commonly accepted measure of affordability is that a maximum of 30.0 percent of annual income for monthly housing payments,with utilities and other costs on top of this. In terms of a for- . rent unit,.this would include rental payment,but would exclude additional payments for utilities (e.g.,water, sewer,.trash, electricity,.gas, etc.),non-essential utilities (e.g., telephone, cable/satellite, and internet), and hazard insurance. In the case of a for-sale unit, it would include mortgage payment(principal,interest,taxes, and mortgage insurance, which together is often referred to.as PITI),but also would exclude additional payments for utilities, Homeowners Association(HOA)fees(which often include some utilities and hazard insurance)and non-essential utilities. In an effort to allow for some of these additional payments,particularly in the case of HOA fees (which typically include water, sewer,trash,and hazard insurance),ERA proposes the use of maximum allowable monthly housing payment of 33.0 percent(including in the case of for-sale units,a maximum initial HOA fee of$200.00 per month). On this basis, the maximumattainable monthly housing payment range at varying levels of MFI in the Sarasota-Bradenton MSA is $921.25 to $1,845.25(see Table 8). If the housing unit is to be rented,the above calculations are sufficient. If the housing unit is to be sold,then additional calculations are necessary to determine the maximum affordable sales price. This is determined by making various financing assumptions(e.g., down payment, interest rate, term)and related items(e.g.,PITI,HOA) fees). The assumptions were developed based on ERA's general expertise in the area of residential development, consultations with Sarasota residential brokers, and current market Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Page 26 conditions: As a,result;.the;maxinium attainable.-housing unit sales.price.range at varying levels,of MFl imthe,:Sarasota Bradenton MSA is::$91.292.to.$2015;247:(see Table 8). General Development Characteristics The.zoning category vane s ace ording-to.the three:zones,Downtown Edge..(DTE), Downtown.Core..(DT.C), andDowntown Bayfront%(DTB): :Based on the..City's zoning ordinance;.the current.(or.base)maximum densitv.h.these three.areas.is,respectively,25 dwelling units(DU)per acre, 50 DU per acre,and 50 DU per acre. In order to optimize development economics ,unless otherwise noted,development_isassumed to be to the maximum density. The maximum number of..stories allowed in these.three.zones,respectively, is five, 10,and 18. Whether or not this limitation is exceeded is.te.sied.(see..below).. In order to facilitate comparison between the three`zones,the site size is set at one(1.0) acre for all three zones.(i.e.,43,560 sq.ft. of land area,also known as"dirt feet"). Building footprint for all three zones is the maximum allowable according to the zoning ordinance, 100.0 percent site coverage. Note.that in order to simplify the analysis and reduce the impact of other factors,the entire development is assumed to be residential. That is,.the project is assumed to be entirely residential,not a mixed-use project with non-residential uses. Residential Characteristics Dwelling unit sizes vary widely in residential projects. However,in order to simplify the analysis,an average DU size of 1,200 sq. ft. was used,which would typically be a two- bedroom,two-bath(2B/2B)unit. This average size takes into account possibly smaller units and larger units. 'The average unit size is held constant across the three zones and, unless otherwise noted,also is held constant when attainable units are considered. The residential area is computed by multiplying the number of dwelling units by the average size per dwelling unit, and grossing up for the common area which is estimated at 18.0 percent of the total residential area(dwelling units,plus common area). Parking Characteristics The parking ratio,that is the number of parking spaces per dwelling unit,is set at 1.50. This figure is above the zoning code requirement of 1.0 parking space per dwelling unit, but is considered reasonable based on market demand and actual resident automobile use. The average gross parking space size is 400 sq.ft.,including the parking space, aisles, ramps,building storage areas, etc. The average parking ratio and parking space size is held constant across the three zones and,unless otherwise noted; also is held constant when attainable units are considered. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Paae 27 _ I ;m•.� m � C .. LA - 0.0 .. .. a NINI�NIN rt+ .. C:'.0:.0 N N M -,..0 to 00 W OIO O O ..a 0 0 C. •� ,,.�� NI0 N N N In E o c m = icr m E v IoM' �tn olv. 0 °lot �Ln . . C u m n m r c m vlrvlrn n rornal0oM LID Ln rp, -INIm m ..N w w w l w ) Q. o ..:: M I nLD to d` o . d o' -J-.l m 17 0 O o M m ton o C N C V DD rj tD Om m w.. LED - o N d Elld 0 p E w wlwlw CL ml�lco l.- ' M Olniln jn l-ZZ , 106 I V .G �.N N lDl Olcy lm N _ n t\ n 100 "' l0Iml0l, . '.O 00 IN LO 0) wl�i� •-- .F � •Iwlwlw � toom oim .a "L vi^1rn 3. a veil njvlV o O a I I Iw _ .. Mloloo n .. ' rnrnoo�ro c u I `a E � l� zoic t F � d NIN •rcx0 C at r C IA:E lw lw�bN4 O - 0 vv In I In 1 l(1 N y NIN N N mlcc G _ E a rn rvi�im C •m o 0 o wl.nlw •� O OI OIO vi v tp to E rn� 00010 o o v c � E Eon � �Io o_ _ v m ii V' •� n V ml gltnlnLM C = 7 C I V to Lo �• �` _ tQ 10 0 -w wiwiw E a= _ E 4•^ c - ` o -r L R LA c. aMai o v _ r .. C v Ctn o C c o .`_' = � o - Q o g U p uc G E _ o m - rn C v G Q olololN Tool-I^ W C The ie ofparking;:whether surface or structured, is determined in a stepwise manner. First,if:the total:parking area exceeds the maximum allowat le.;building footprint, then it must be structured. Second,if according to the first test;the.total parking.:area does not exceed the maximum building footprint,then a test is.performe Jo determine if the non- parking(i.e.,residential)area exceeds the remaining built space,assuming that the parking is surfaced(i.e.,total built area,less parking area,times maximum nurriber.of stories, versus maximum allowable built space). This somewhat..coniphcated.calculati ons determines whether or not parking is on the surface on:structured,which,sgnificantly affects development costs(see below). Project Size, FAR and Stories The project size is a function of the residential area and parking-area. Added to this is the gross parking area,resulting in the total built area,which may also be referred to as the total saleable area. The Floor Area Ratio(FAR)is the total built area divided by the building:footprint,which on a one-acre site is 43;560 sq. ft. The number of stories is determined by rounding the FAR up to zero decimal places. For example,if the FAR were 4.7,the number of stories would be rounded up to five(5.0). Development Costs The development costs were determined via detailed discussions with Sarasota area developers,brokers, and contractors. Development costs vary=widely as a function of numerous factors,particularly the location of the project,site size and configuration, allowable density/height,and the local market for the.project. Where the interviewees gave a wide range of figures,an approximate median was used. The current land cost per land sq. ft. (also known as "dirt"sq.ft.)varied widely across the interviewees,resulting in the necessity to use a median value for each of the three zones: $75.00 in the DTE, $100.00 in the DTC, and$150.00 in the DTB. Construction costs were more easily determined, but had increased significantly during the last six months(which is in-line with the situation nationally and particularly in the Southeastem U.S.). The following values are used per residential and common area sq. ft. (includes substructure, shell,interiors, services, equipment and furnishings; contractor profit,but excludes parking and on/off site infrastructure)in each of the three zones: $150.00 in the DTE, $175.00 in the DTC, and $200.00 in the DTB. The cost per parking space is$5,000 for surface parking and$25,000 for structured parking. The remaining development costs are assumed to be the same across the three zones. This includes on/off-site infrastructure costs per unit($17,500.00),permits and fees per unit ($10,000.00), other soft costs(e.g.,architecture/engineering, legal, insurance; etc.)(20.0 percent of construction,parking;on/off-site infrastructure), and property taxes (1.8 percent. of land,construction,parking, on/off-site infrastructure,and soft costs). Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainabie Housing Study Pace 29 Development,Financing The development financing terms were determined'Via detailedAiscussions.witla Sarasota area developers and financiers. _Financingterms vary.,widely.as::a:function.of numerous factors,particularly the strength of the borrower and the'local market for the project. Where the:interviewees:gave.a wide.range•offigures pan.approzirnete median was used. However;note thattlie financing terms are-held constant:across1hethree zones. Unless otherwise noted,:the.same.financing:terms'were used:for both land.and construction costs. These include the.following:...75.0 percent.Loan-.To-value:(LTV)ratio;60.0 percent average outstanding loan balance; 7.00 percentinterest rate; 1.00 percent loan fee(points), and a loan pehod.of 36 months for.land(12 months pre-construction.period,pias the construction period)and a construction period of 24 months. Sales Prices/ Rents The sales.prices for market rate dwelling units were determined via detailed discussions with Sarasota area developers and.brokers as well as a review of recent listings. The prices used are$500;000.in the DTE, $600,000 in the:DTC,'and$700,000'in the DTB. Note that this is'for the..average unit size of 1,200 sq. ft.,resulting.in market.rate.sales prices of $416.67 per'sq.ft.,$500.00 per sq.ft.,and$583.33 per sq:ft.,respectively. Maximum sales prices'.for.below market(i.e.,attainable)units were-:noted in the paragraphs on affordability..above. The cost of marketing and selling the market dwelling units is estimated at 7.0 percent of sales revenues. Note that this cost is applied to both market rate and,when used,attainable units. Rent per DU was determined via a review of recent listings. The rents specified are$1,250 per month in the DTE, $1,500 per month in the DTC,and$1,750 per month in the DTB. However,note that these figures are only used when the option to rent the units, not sell them,is utilized. The remaining inputs under the for-rent option are the same across the three zones as follows: 5.0 percent vacancy rate;25.0.percent operating expenses;3.0 percent capitalization rate (assuming stabilized year sale); and 5.0 percent cost of sale. Note that the development of for-rent units in Sarasota was not economically feasible under market conditions at the time of our previous study and this situation has only worsened due to the above market trends. Therefore, our analysis focuses exclusively on the for-sale condominium market, although development of for-rent units is likely to become economically viable again at some point in the future and,therefore, should not be excluded from attainable housing policies. Development Profit (Loss) The development profit(loss).is computed as the gross sales revenues, less the total development cost(the methodology is the same,whether for-sale or for-rent,although the figures would vary). In ERA's judgment,based on the expected slowdown in development due to the increasing development costs and flattening sales prices noted above, developers will be willing to accept a lower development profit(also known as the hurdle rate)in the Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 30 near to.mid=term of 20.0.percent on the total development cost.(note-that.this includes both equity aridrdebtlinanOn Density"Bonus;',Without Attamable'`Housing`Requirements :Assuming:no density..-bonus.:and.no:-attainable:houstng:requtrements as`well:as current market conditions.for aloof:the:feasibility,model:inputs reviewed above,new development in the three downtown zones is not expected to result.in a profit level that exceeds the minimum level of.20 percent.regi ired''.by fot-profit�developers•(see.Table 9). Stated another way;-u—nless developers-are.already vested.in some way.in'the zones(e.g.,land or construction:costs at:below.current-:market.rafes or has some other advantage versus market rate conditions),rational for-profit developers would not.be'expected to build. Table 9: Development Profit of For-Sale Units(Condos)by Zone by Density Without Attainable Housing Requirements,Downtown Sarasota .... Zone Density. oDowntown Edge(DTE) Downtown Core'.(DTC) :Downtown Ba front(DTB) M of Current Development Development:: Development Densi ) DU/acre Profit DU/acre 'Profit 'DU/acre Profit '1'00% 25.M/acre -3.3% 50 DU/acre 15.6% 50 DU/acre 12.4% 200% 50 DU/acre 4:4% 100 DU/acre 17.8% 100 DU/acre 18.9% 300% 75 DU/acre 9.7% 150 DU/acre ' 150 DU/acre ' s; _ 400% 100 DU/acre 13.1% 200 DU/acre ` :;: x� 200 DU/acre This table displays the development profit[(sales-revenues-development costs)-/development costsj in each of the three zones (DTE,DTC,DTB)depending upon the density(100%current density,200%current.density,300%current density,400%curent density)assuming current market conditions and no attainable housing requirements. Shaded cells indicates that the minimum development profit level(also known as the hurdle rate)of 20%was met or exceeded. Note that the 400%density level in the DTC and DTB zones is roughly equivalent to the current Downtown Residential Overlay District(DROD). Source: Economics Research Associates,2006. However,note that if density is increased substantially, development should become more profitable. In fact,this is the case,with development becoming profitable in the Downtown Core (DTC)and the Downtown Edge(DTE) at a density that is 300 percent (150 DU/acre)or greater of the base density(see Table 9). (This still assumes though that no attainable housing units are required in return for the increased density.) Note that in the Downtown Edge(DTE), even an increase in density up to 400 percent(100 DU/acre) of the base density does not come close to the minimum development profit level required by for-profit developers. Density Bonus With Attainable Housing Requirements While the preceding analysis showed that development under market rate conditions is only expected to occur with a significant increase in density, it is also necessary to test the impact of attainable housing requirements. An attainable housing requirement reduces the developer's profit. A density bonus increases the profit. In an ideal situation, one precisely offsets the other. Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Paae 31 The attainable housing requirements take two.forms: first the percentage of the total dwelling units that:are required to be affordable.(i.e.,five percent;l0 percent, 15.percent, or:20percent)and second::ttie:incomeleveliof>the attainable.households as:measured versus.the:IVledian Family:Income(MEI)(e:g 60.percent;8Q::percent :I QO.percent, or 120 percent). Again note that Median'Familylncome I)is de fined'by.the 'US. Housing and Urban Development•Department(HUD),as`.the.median family income for a family of four in.the Sarasota-Bradenton Metropolitan Statistical Area(MSA)...::::::. . .:......: ..... This analysis is relatively:complexsince it considers the impacts of density;-Attainable housing:unitrequirements,•:and attainable household income.levels. As such,it is presented=in.tables;(see Table 10 to Table 12);;one for each of the three downtown zones. Note.that gas expected;':the development prof t;decreases as the attainable housing requirements are in.66ased. As:noted above,in.the Downtown.Edge(DTE), even an increase.in density up to 400 percent;(100 DU/acre)of the base density does not come close to the minimum development.profit:level at current market rate conditions. Attainable housing requirements further reduce the development.profit.level. For.example,assuming 400 percent density(l00 DU/acre),with no attainable housing requirements the development profit level is 13.1:percent,which decreases-.to.10.0,percent assuming a relatively light attainable::housing requirement of five.percent.attainable units and attainable household income at:120 percent of WI(see Table 10). The development profit level only gets worseas density is decreased or the attainable housing requirements.are increased. In the Downtown Core(DTC), as noted previously,an increase in density to 300 percent (150 DU/acre)or more is necessary to reach the required minimum development profit level. However,despite assuming an increase in density in the Downtown Core of 400 percent(200 DU/acre), even minimal attainable housing requirements(5 percent attainable units and attainable household income at 120 percent of MFI)reduces the development profit level below the minimum required(see Table 11). That said,under this option, development profit is within one percentage point of the 20 percent hurdle rate required by for-profit developers. Also, in the Downtown Bayfront(DTB), as noted previously, an increase in density to 300 percent(150 DU/acre)or more is necessary to reach the required minimum development profit level. Finally, assuming an increase in density to 400 percent(200 DU/acre), the development profit is above the minimum required level only with relatively minimal attainable housing requirements(five percent attainable units and attainable household income at 120 percent of MFI)(see Table 12).Assuming a somewhat reduced density of to 300 percent(150 DU/acre) and the same relatively minimal attainable housing requirements,the development profit is again within one percentage point of the 20 percent hurdle rate required by for-profit developers. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 32 Table:•'10:...D.ev.elopinentiP'rofit of:'For;�ele'Units;.(Condos):in:the-Downtown Edge (DTE)witb Attainab]6 Housing.-Reguirements,Downtown;Sarasota J. Density:..::; Household.:- (%of Current. 'Income Level. 0%Attainable 5%Attainable 10% 15% 20% :!Density) -DU/Acre '.(%of MFI) DU DU. . Attainable DU. 'Attainable DU Attainable DU 60% b:2°io -9:2% iZ:.l°io 18.1% X80%......; .6:0% ..'.:: : '..::=8:6%._. ..:; -11.:3% -16.7%• 100% 25'DU/acre' -3.3% Y. :'.100% :.,5:7%'..;: =8.1% -10.5% 15.3% 120°!0 -5.4% -73% -9.6% -13.9°/c 60% 13%; -316% -6.8% •11.5% 80% ..1.6%- =2:9% 5.7% -10.0% 200% 50 DU/acre 4.4% 100% 1.9% 2.1% -4.7% 8.4% 1.20°!0 :2.2% -1:3% -3.6% -6.9% ;60% 6.4% :1:9% -2.5% -7.0% 300% 75 DU/acre.:.' 80% 9.7% 6.7% 2:7% -1.3% -5.4% 100.% 7.0%' :'.: 3.4% 0.2% -3.8% '1'20% 7:3% 4.2% 1.0% 2.2% 60% 8.8% 4.6% 0.2% -4.1% 400% 100DU/acre. 80% 13.1% 9.2% 5.4% 1.4% -2.4% 100%' 9.6% 6.2% 2.7% 0.8% .120% "10.0% .7.0% 3.9% -0.9% This table displays the development profit[(sales revenues-deveiooment costs)/development costs]in the Downtown Edge(DTE) assuming current market conditions,depending upon the density(100%current density,200%current density,300%current, density 400%curent density),plus the foliowing attainable housing conditions: the percentage of attainable units required(as a percentage of the total dwelling units in the development)and as a percentage of the attainable household income levels. Shaded celis indicates that the minimum development profit level(also known as the hurdle rate)of 20%was met or exceeded. Source: Economia Research Associates,2006. Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainabie Housing Study Page 33 Table 11: DevelopmentProfit of-For=Sale:Units(Condos)in the Downtown Core(DTC)with Attainable Housing Requirements,Downtown.Sarasota Attainable ..Density., Household (%of Current income Level 0%Attainable 5%Attainable 10% 15% 20% :Densi ) DU/Acre -:..(%of MFI) DU DU.:. Attainable-DU Attainable DU Attainable DU 60% 12.0% 6.5% 2.9% 2.6% lOD% SD DU/acre 8D% 15.6% 12.3% 7.2% 3.9% -1.2% 100% 12.5% 7.9% 4.8% 0.2% 120% :12.8% .:8:6% 5.8% 1.6% 60% 13.1% 8.6% 3.9% -0.7% :80% 13:5% 9.3% 5.0% 0.7% 200°6 100 DLI/acre 17.8%, 100°/a 13.8% 10.0% 6.0% 2.2% y'20P/u"'.•,::`:' 14:2% .10.:7% 7.1% 3.6% 609/:..'' 16.9% 118% 7.4% 2.3% 80P/or'••'":°y i, 17.2% 12.6% 8.5% 3.8% 300% 150.:DU/acre (; 700°k' _ 17.5% 13.3% 9.60/6 5.2% ::`.130%;:.:'::''? d 17:9% 14:0% 10.6% 6.7% 60°/d 18.7% 13:8% 9.0% 4.1% 400% 200.b.Wacre':. `.. 80%... ""A 19.0% .14.6%1 5.6% 1000/,' 19:4% 15'3%1 11.2%1 7.1 120% . P 19.8% 16.1% 12.3% 8.6% This table displays the development profit)(sales revenues:=::development costs)/development costs)in the Downtown Core(DTC) assuming current market conditions,depending upon the density(100%current density,200%current density,300%current density,400%curent density),plus the following attainable housing conditions: the percentage of attainable units required(as a percentage of the total dwelling units in the development)and as a percentage of the attainable household income levels. Shaded cells indicates that the minimum development profit level(also known as the hurdle rate)of 20%was met or exceeded. Note that the 400%density level with 0%attainable units is roughly equivalent to the current Downtown Residential Overlay District(DROD). Source: Economia Research Associates,2006. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainabie Housing Study Page 34 Table 12: Development Profit.of For-Sale Units(Condos)in the Downtown Bayfront(DTB) with Attainable Housing Requirements,Downtown Sarasota . Attainable Density Household (%of Current Income Level 0%Attainable. 5%Attainable 10% 15% 20% Density) DU/Acre (%of MFl) DU :'::: DU Attainable DU Attainable DU Attainable DU 60% 8.8% 3.3% 0.3% -5.8% 80%. 9.0% 3:9% 0.5% -4.6% -100% 25 DU/acre 12:4% 100°io...... 9.2% 4.5% 1.3% -3.5% 120% 9.5% 5.1% 2.1% -2.3% 60% 14.1% "9;4% 4.5% -0.3% 80°ic o ::...:.. 14.4% 10.0% 5.4% 1.0% 200% 50 DU/acre ° 18.9 ro. 100i° 14.7% 10.6%) 6.4°0 2.2% 120% 15.0% .1.1.2%1 7.3% 3.5% 60% "1910% 13.7% 9.1% 3.6% :...300% .75 DU/acre 80% y` 193% 144% 10.1% 5.1% 00% 1996%4' ..... 19:6% ':5.0% 11.0% 6.4% C ::.'.120%::;::'` 1.99% 15.6% 12.0% 7.7% .., ... 60%.:%.;.:.' .. :'..j±..f/o 16:4% 11.3% 6.2% 400% 100 DU/acre ..80% 12.3% 7.5% 13.3%1 8.8% ;`�' y;+•Fp 18.4/° 14.3 ro 10.1/o This table dispiaysthe deveiooment:prefit[(sales revenues;-,-development costs)/development costs)in the Downtown Bayfront (DTB)assuming current market conditions,depending upon the density(100%current density,200%current density,300%current density,:400%curent density),plus the following attainable housing conditions: the percentage of attainable units required(as a percentage-of the total dwelling units in the development)and as a percentage of the attainable household income levels. Shaded cells indicates that the minimum development profit level(.also known as the hurdle rate)of 20%was met or exceeded. Note tnat the 400%density level with 0%attainable units is roughly equivalent to the current Downtown Residential Overlay District(DROD). Source: Economics Research Associates,2006. Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Page 35 Sensifivity:Ana/ysis ' In:.the. recedm section .as..ex ected as the,attainable..housing requirements were mcreased;:the:development:profit:decreased'and'*most.cases:dropped:below the mind'mumsequireddevelopmenf profit:level.°:Tliis:'is`due:.fo`tlie.marginal development economi69:.under:conditions;as discussed in the.previous section. While this,w:ould.appear;to indicat6 that a'density:bonus and-attainable housing requirementas not wortli Ihe:effort to consider;'Ruth r tis important to note that the preceding analysis was'.made:considering:current::market conditions. Essentially,this would require°:that a dev'eloper..attempt to.:enter;:the'ma ket today,.under current market conditions. However,.:currently there maybe:nurn.erous iievelopers that are already in the Sarasota market with one or.more-dripuis that`are below.current market rates. For example, a developer:miay own.land or haye:an option.to,purohase land at a price below that assumed in the model:::in.additi.on;;;the citymay.have-.the:ability.:to,reduce some of the cost of other .:...:... . development:costs.in a:vane of ways. n' Therefore,itis1important;:;to..=evaluate the relative importance to development profit of a range of factors:affecting development economics. This can be done by specifying an example density and attainable housing requirement,-..and then varying the development inputs. -As an%.example-;the following case was selected:for.this analysis: a 400 percent density(above'base density), 10 percent:attainable'housing requirement, and attainable household income at 120.:percent.of WI. A number of.variables were then changed from their base,input level,ranging from 50 percent to 150rpercent,.to-test.the..impact on-the development profit. This was done for each of the three zone.s:,.:.The.mimmum development profit was met only under the following conditions.(see"Table`13): • In the Downtown'"Edge(DTE),with a significant decrease in construction costs(75 percent or less of the-base construction costs), a significant decrease in parking cost(50 percent orless of the base.parking cost),or a significant increase in the market rate unit sales price(25 percent or more of the base market rates unit sales price). • In the Downtown Core(DTC)as in the Downtown Edge(DTE),plus also with a significant decrease in soft costs(50.percent below the base soft cost input). • In the Downtown Bayfront(DTB), as in the Downtown Core(DTC),plus also with a significant decrease in land costs, on/off site infrastructure costs, construction loan period,interest rate, and attainable dwelling.unit size. Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Page 36 x. Table::33:"DevelopmenfProfit.ol For=Sale.tinits;(Condos).Sensitivities with Selected Density .and Attainable':. ousingRequirement.I owntown.Sarasota,.: Zone :Sensitive (?h otVariable'Versus Current Market Rate) Variable S0% ' 75% '100%'(Base)1 125°6 150°k A.ILand:Costs Per.Dirt Sq.Ft. 10.8°io ..::.r. ..:,:8.5% I 4.0%1 2.0% :`B'':Coristruction Gosts.Per:Sq:Ft. $L .' •,j9,•.:. ;i�r*' 8.6% 19.8% Cost.:Per.:P.arkin :•Space. 0o 3.3/0 0.6% i..D.:On/Off-Site.lnfrastructure ::'`9:0%I ":7.6°/1 4.8%1 3.5% E'' Permits and fees'-Per;Unit' '''`7'S°/1 6 9% 5.6°/1 4.9% F''Other.Soft Costs :.::..: 13:8% 9;9%.. 2.8% -0.4% Downtown Edge' , (DTE) G:: P.ropertv Taxes 6:9?/° 6:6% 6.2% 5.8% 5.5°/1 H Pre=Construction Loan Period 6:3116 6.3%; 6.1%1 6.1% I': Construction-.Loan'Period9:2°/11 7.7% 1 4.8%1 3.4% J•;.;Interest Rate::...: 9:3%.: .:. 7.:7°/1 .. 4.7%1 3.3°/1 K'.%Attainabie.'.DU.Size(SO:Ft:) 9:6% 7.60/a I 4.3%1 2.6% L`� Parking Spaces PerAttainable DU 6:8% i 6.5% .5.9%1 5;6°/1 M Market Rate Unit Price 4218%1 1.718% A Land Costs Per Dirt Sq.Ft. 18.3°/11 16:8% V 13.9% 12.5% B Gonstruction:Costs-P.er:Sq.'Ft. -1.7%1 -14.3% C:'Cost P.erParkinq'Space q ,. ' 18:3./0 12.5%! 9.8% D: On/Off-Site Infrastructure `: "'.,18:1%1 .:' :16::7% 14 01,161 12.7% Permits.and:Fees:PerUnit.. :16:6.°/11. 16:0°/1 14.7% 14.1°/1 Downtown Core F Other.Soff Costs ;K•. a' `19.5°/11 11.5°/11 7.911. (DTC) ProoerliV Taxes 16.1%1 •15.7% 15.3% 14.9% 14.6% H. Pre Constructiori Loan Period 15:4°/11' 75':4°/1 15.3%I 15.2% I lConstruction Loan Period 18:5%1 .16:9% 13.8%1 12.3% J I Interest Rate 18.6%1 16:9°/1' 13.8%1 12.2% K Attainable DU Size(Sq.Ft.) 19.6%1 17.5% 1 13.4%1 11.6% L'::Parkinq.Spaces Per Attainable DU .15:9%1 1 -15:6% 15.0% 14.7°/1 M:Market.:RateUnit.Price .:Z_ 8'01/.t.. 0;8% ' a A Land Cbsts Per Dirt'Sq!Ft. F;at". .cl..:.:.. 19:7%1 15.8%! 13.9% B I Construction'Costs Per So.Ft. #, ¢. 0.3% -12.7% C lCost Per Parkino Spaceo o° 7135 i 15.1%1 12.7% D On/Off-Site Infrastructure . 1 18.9% ' 16.5%1 15.3% E lPermits and Fees Per Unit 18!9%1j :. 1.8.3°/1 17.1°/1' 16.6°/1 Downtown F 10ther Soft Costs '( - TINT 13.8%1 10.2% Bayfront G IPrODertvTaxes 18:5%I 18:'1°io 17.7 0 1?.3°/ 16.9% (DTB) H Pre-Construction Loan Period 17.8% 17.8°/11 17.6%1 17.6% I Construction Loan Period a4,{ ..MJ., •'.iW 19.3%1 1 16.1°/11 14.6% ! I Interest Rate '' ` '+'-'`. 3 9;9ti'; 19.4%; 16.1%1 14.5% Y. lAttainabie DU Size(Sci.Ft.) 15.8°/11 13.9% L I Parkinq Spaces Per Attainable DU 18.29,1 17.9%O1 1 17.4%I 17.2% M IMarket Rate Unit Price -36.9% -9.0% '- �'• p' This table displays the development profit[(sales revenues-development costs)/development costs)in each of the three zones(DTE,DTC, DTB),assuming variation versus the current condition for the specified.variable(50%,75%,100%,125%150%)assuming the fofiowino density and attainable housing conditions: the density is 400%of the current density;.10%of the total units are for attainable nouseholds; and the attainable households are at 100%of the Median Family Income(MR). For example,in the Downtown Edge(DTE),if Variable A- Land Cost Per Dirt Sq.Ft.is reduced to 50%of the current market rate,the development profit wili increase to 10.8 percent(versus a development profit of 6.2 percent assuming that Variable A-Land Cost Per Dirt Sq.Ft.equals the current market rate). Shaded celis indicates that the minimum development profit level(also known as the hurdle rate)of 20%was met or exceeded. Source: Economia Research Associates,2006. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Densitv Bonus and Attainable Housing Study Page 37 i These::fJ d'ings:suggestthavdevelopers.:may.take:advantage.of a density bonus program with:attalmable'housing requirements if they have some:.sort.of advantage;versus current marketconditions. This advantage may come as a function of their,:.situation(e.g.,prior purchase or.optioning of land at below current market rates)and%or as a.function of city actions(e..g,:provision'of-infrastructure,low-cost financing,.or other incentive). Whether alone or in.combination;this:situation is likely to entice developers to take advantage of a density,bonus:program despite associated attainable housing requirements. Summary Information provided by residential developers and stakeholders in downtown Sarasota was used to prepare a,development feasibility model,which ERA used to analyze the profitability of development in downtown Sarasota. The analysis was done in a step-wise manner, starting with current conditions,then with increased density and no attainable housing requirements, then with increased density with attainable housing requirements, and finally with sensitivities to individual feasibility model variables. This analysis leads to the conclusion that under current and foreseeable market conditions, even a significant density bonus is unlikely to result in new development of attainable units downtown. Furthermore, as attainable housing requirements are imposed and increased, the development profit decreases and new development becomes less and less probable. - However,if developers have some sort of advantage versus current market conditions in the downtown,thena density bonus program could be effective in creating attainable housing. Such an advantage could be due to a range of factors, such as reduced development costs(such as reduced land or construction costs,or even as a function of city financial support or actions), increased sales revenues, or a lower minimum development profit level. In addition,non-profit housing developers may be in a better position to take advantage of a downtown housing density bonus,particularly when combined with other development tools, such as below market interest rates or low-income housing tax credits. It is also useful to take a broader view of the situation,in which a density bonus and attainable housing requirement may used in.the future in the downtown when market conditions have improved. Such a policy could also be considered for application in areas outside the downtown. Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Page 38 :5. Re.cornmended Policy anclComprehens>Ive�Pla n m:dn • rnent . .Introduction In this-report section;ERA proposed•.changes:to.the Sarasota City Plan based on the preceding analyses. These proposed.changes are expected to form the basis of a comprehensive plan.:amendment. Following adoption of the proposed changes, ERA will work with the City to develop proposed modifications to the City of Sarasota Zoning Code. Summary.of Proposed Policy Based on the preceding policy and economic analyses,ERA:recommends that the City of Sarasota pursue the downtown density bonus and attainable housing policy outlined in Table 14. In developing the recommended policy,ERA sought.to find a.balance among a range of issues including the following: • Community interest in providing housing downtown that is available to all residents,not just investors or the affluent. • Impact of such a policy on the City's housing market,the area economy more broadly,and overall development downtown.in the near- and long-term. • Utility,legality, and financial feasibility of such a policy. • Overall consistency with and success of similar policies in other communities. • Compatibility with existing adjacent residential development. • Ability of the City to administer an attainable-housing density bonus program. Recommended Changes to Housing Chapter ERA recommends the policy changes below to the Housing Chapter of the Sarasota Cite erRxV. mow. Plan. Note that changes area I H with deletions marked with �text AT. . and additions marked with rt e text. Objective 1—New Construction The City shall continue to enhance a City governmentiprivate sector association that encourages the private sector to provide new housing that: • meets the needs of City residents; • is innovative; • is compatible with the City's neighborhoods.; d • ti_ersK-t��t`�e.;,:''�' >yt: "s.i�� ��•..� a- � �. �.e. �.es an` MIS rft. m "CE:S1:'G11�5';. Economics Research Associates City of Sarasota Project No. 15939 (Z) Downtown Density Bonus and Attainabie Housing Study Paae 39 m o ... ... . .. ,.... r ,.�.._ y�..t. .,c F '. 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I G �9 a.8' 1 9 A 9 L',A'1".�u Ea k'a• • - • • �• • I- M • ,• • • • , ........:::.. .1 :..::.::.,A..:.l:,.. 312d11.F : .. ............._ . .. ..._..,.... ..... ... :.... : u...mr :.«::_.,.;•.,;x:r'_.,;r: +.•.a.. ;ice '1 :F�r=?t?7;�:,,..);(t:i:�`-, -,Y - - k =F1 31 ^ 1 ° .... .. .............. ............ .....,...:_...._�:,•.. .,.....s...,.......:.r.. at-, ..,rc i.1:•'� �+Fri., i� V4 •::apM ....: . ....,...... Y:... ... :.........:. 1_e., til.. .,........ ...,� .��'.' - .. .... ..... 1. �. ., ...,..,.... ..,..,..:1,...:::-::.r;^i.. .. :.......... :...:...:::......, .: ..ham.•; Objective 5._';:Coordinate';with oth'er:LocalG:overnments and Private Sector :.... ..:....:;.... .:.4 .. .. Achon..Strate yes...' .:.. ... .:..... . x.... ';' . ... ... .. ... ..4.. .......:......:...... .....1..:..�:.�. -'its: INNIN ='t . k JI IIF :k.1)lrs.,ii : 1 (1 ' Recommended Changes to Future Cand Use Chapter ERA recommends the policy changes noted below to the Future Land Use Chapter of the 4 -.,..— Sarasota Ci ,Plan Note that changes are I'.. 'Ie.,with deletions marked with text and additions marked with , I e text. Objective 2—Land Development Regulations The City shall make appropriate changes to the City's existing Land Development Regulations(LDRs), including zoning code, in order to ensure continued consistency between those regulations and this Sarasota City Plan. In addition,the City may consider other regulatory factors for possible incorporation into the Land Development Regulations that are not issues of"consistency",but which warrant consideration due, in part, to the developed character of the City. Action Strategies: . :o• 0, .rl'�.�.A,- 4 -ti4• 3 ) iY:k 1. - .. � h•=''•: :P'. S81, P Dis ric u 1a:Do. rrtownlD i i' Bni fi�ai i'; diOffi 'u ve a'. ;;n :d';''.r�,: k~~iAr' ^'.. �yttd=ey iv �rrl.. ;ds�iw f:. ..�,. .�'='��:t�i:i?,?ir,.;'7A:?:!>,..a����:::. +r� ,� is ru�sla�a lMe_ac�ie�to�hel�t�t f�'a° riot' Z��n�n�:�od�`�and,l atdl��epla e •.L'�'��;M'•�;: '�� ��r�;�, t,� ���'ts� �-'.:r,, 9 4-��;ti� �fi�"�:.�'�•>.,<><:s�zs- r�: u�--1". t. I M.0 Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 44 N yi- 14,1p ;SF Mir 11MUR Er .g RON,% (j 9 90 MOIR;,M11.1,11U."SOMM If , .? 77, .. .................. ............. ............ U -­Q RP Fa j T V ........ j" ,4� .. 6. Development Capacity Introduction The three downtown mixed-used zones in the study area provide a finite amount of land available for..development....Based.upon information provided by the City Planning Department,:ERkevaluated the increased residential.development that could occur as a result of an attainable housing-related densitybonus program, and the number of attainable housing units.that could be built in a best-case scenario. ExistingDwelling Units and Capacity According to the City's Planning Department,there are 4,697 existing dwelling units in the current DTE,DTC, and DTB zones combined, as shown in Table 17. Factoring in City's proposed expansion area for the DTE zone adds an additional 914 existing dwelling units. Together,this results in 5,611 existing dwelling units within the study area. As Table 18 demonstrates,under current zoning regulations,the maximum development capacity in the study area totals 9,327 dwelling units(excluding use of the Downtown Residential Overlay District or DROD). Potential Dwelling Units and Capacity Incorporating this information,ERA estimated the change in maximum development capacity that could occur if an attainable housing-focused density bonus prograrn was enacted. In this case,the maximum number of dwelling units per acre would increase from 25 DU/acre to 50 DU/acre in the DTE zone, and from 50 DU/acre to 200 DU/acre in the DTC and DTB zones—similar to the current program in the DROD. Assuming a maximum utilization scenario,whereby all new developments would utilize the density bonus program,the maximum residential development capacity would total 28,901 dwelling units as shown in Table. This represents a potential maximum net capacity increase of 19,574 dwelling units versus the number of units allowed under the current zoning(see Table 20). However, this level of utilization of the proposed density bonus program is considered unrealistically high, primarily due to the voluntary nature of the program(meaning that many developers probably will not use it) and its discretionary nature(meaning that the City Commission may not approve developer applications). Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Page 46 l� Table 17: Existing Dwelling Units in Study Area Area Units Current Downtown Zone Districts DTE 1,709 DTC 593 DTB 2,395 Sub=total 4,697 Areas Under Evaluation for DTE Zoning Area 1, Central Coconut 555 Area 2, Rosemary 119 Area 3,4th.Street Lots 35 Area 4, Park East,west of Lime Ave 32 Area 5, Park East,east of Lime Ave 165 Area 6, School Ave/Ron Burks Site 0 Area 7. Wood Street Site 8 Sub-total 914 Total 5,611 Notes: Includes units currently under construction. Source: City of Sarasota,Department of Pianning,January 2006 Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 47 Table 18.::.,Maximum'jDevelopment Capacity, :in Study Area.'Under Current Zoning Regulations Maximum Percent Maximum Zoning,District-with in:Downtown Acreage 'Dwelling Units`Per :Residential Dwelling Units Urban'Mixed-Use Classification . Acre Mix Allowable The following areas are currently zoned with Downtown Districts DowntownEdge.(DTE): 157.10 25 50% 1,963 Downtown Core(DTC) 171.59 50_ 25% 2,144 Downtown Bayfront(DTB) 79.34 50 75% 2.975 Sub total 408.03 7,082 The following areas may be rezoned.to Downtown Edge(DTE) 1 -Central Coconut 78.12 25 50% 976 2-Rosemary Neighborhood 28.80 . 25 50% 360 3-4th Street Lots 3.80 25 .50% 47 4-.Park East(west of Lime Ave) 28.32 25 50% 354 5-Park East(east of Lime Ave) 22.44 25 50% 280 6-School Ave/Ron Burks Site 9.43 25 .50% 117 7-Wood Street Site 8.89 25 50% 111 Sub-total 179.80 2,245 Maximum Dwelling Units Allowed by Current Zoning.. Current DTE, DTC, and DTB Districts within Downtown Urban Mixed Use 7,082 Areas that may be rezoned to DTE 2.245 Total 9,327 Notes: Maximum density allowed excludes right-of-way Reflects current allowable densities and percent mix of development. Source: City of Sarasota,Department of Planning,January 2006 Economics Research Associates City of Sarasota Project No. 15939.(2) Downtown Density Bonus and Attainable Housing Study Page 48 IH. i� Table':.19:.;.1mazimum Development Capacity.In Study_Area••with:�D.ensity:Bonus Zonin District within Downtown Idlaximum.:. :.: ...,Percent.. Maximum g' Acreage Dwelling:.U,nits;Per . Residential Dwelling Units Urban Mixed-Use Classification .Acre. 'Mix Allowable The following areas are currently zoned with Downtown Districts Downtown Edge(DTE) . 157.10 .50 50% 3,927 Downtown Core(DTC) 171.59 .200 ..25% 8,579 Downtown Bayfront(DTB) 79.34 200 75% 11.901 Sub-total 408.03 24,407 The following areas may be rezoned.to Downtown Edge (DTE) Area 1, Central Coconut 78.12 50 50% 1,953 2 - Rosemary Neighborhood 28.80 50 .50% 720 3-4th Street Lots 3.80 50 50% 95 4-Park East(west of Lime Ave) 28.32 50 50% 708 5- Park East(east of Lime Ave) 22.44 50 .50% 561 6 School Ave/Ron Burks Site 9.43 s0 50% 235 7-Wood Street Site 8.89 50 50% 222 Sub-total 179.80- 4,494 Maximum Dwelling Units allowed within Study Area Current DTE, DTC, and DTB Districts within Downtown Urban Mixed Use 24,407 Area that may be rezoned to DTE 4.494 Total 28,901 Notes: Maximum density allowed excluges right-of-way Density'bonus assumes 50 DWacre for DTE and 200 DU/acre for DTC and DTB Reflects exisuna terms for percent mix of deveiooment. Source: City of Sarasota,Department of Pianninc,,January 2006 Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown DensityBonus and Attainable Housing Study Paae 49 J. Talile.20: Ne..Rpacity:in'Stud r.District Under Current Zonin and:Pro. osed DensityBonus 3 $; P DTE DTE DTC DTB Add-On Total Current Zoning Maximum Dweliino Unit 1,963 2,144 2,975 2,245 9,327 .Ezistina'Dwellina Units 1 709 U3 2.395 914 5 61 i Net:Capacity'Under Existing Zoning 254. 1,551 580 1,331 3,716 Proposed Zoning Maximum Dwelling Unit 3,927 8,579 11,901 4,494 28,901 Existing Units 1 709 593 2.395 914 55 61' Net Capacity Under Proposed Zoning 2,218 7,986 9,506 3,580 23,290 Difference in Net Capacity(Proposed vs.Current Zoning) 1,964 6,435 8,926 2,249 19,574 Notes: Density bonus assumes 50 DU/ave for DTE and 2DD DUlacre for DTC and DTB Existing dwelling units includes units currently under construction Calculation assumes nest case scenario under which there are no constraints to deveiopment(ohysical or otnerwise) and all developments utilize the density bonus at the maximum number of units. Sources: City of Sarasota Planning Deoartment;Economics Research Associates. Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Page 50 i The maximumaverage.density.,in.the study.area:would;increase from 34.4.DU/acre under cuirent zoningto:106:.7 DU/acre under''the pioposed.zoning.(see Table"21`). Again, neither of..these:densities:are,expected to'be.achieved.'but.thev provide.a relative benchmark of the potential densitv:increase. Potential Attainable Housing Units Presuming 10 percent of net new housing units would be designated as attainable units, is under the best case scenario a maximum of 2-329 new.attaiiiable.dwRling units would be possible under the proposed policy(Table 22). It is highly unlikely,however, that under a voluntary program all of these units would be constructed. Due to the large number of factors influencing-the specifics of.each development project,it is not possible to forecast how many of the potential attainable housing units will in fact be built. However,based on experience in other communities with voluntary density bonus and attainable housing policies,the number of attainable units actually built is likely to be significantly lower than the potential maximum,perhaps on the order of 10 to 20 percent of the maximum. As shown in Example 1 in Table 22, if a total of ten percent additional housing units were built in the study area due to the density bonus, above the maximum number allowed under current zoning(excluding application of the Downtown Residential Overlay District), a total of 2,329 new dwelling units would be built. If 10 percent of these were required to be attainable units,then 233 new attainable housing units would be built. As shown in Example 2 in Table 22, if a total of twenty percent additional housing units were built in the study area due to the density bonus, above the maximum number allowed under current zoning (excluding application of the Downtown Residential Overlay District),a total of 2,329 new dwelling units would be built. If 10 percent of these were required to be attainable units, then 466 new attainable housing units would be built. ERA considers that these two examples are a reasonably accurate estimate of the probable number of total and attainable housing units that may be under the recommended density bonus and attainable housing policy. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Paae 51 i' 's Table`21=::;Maximum Density in Study District Under Current-Zoning and Proposed Density DTE DTE DTC DTB Add-On Total Acres Total Acres 157.10 171.59 79.34 179.80 587.83 Percent Residential Mix 50.0% 25.0% 75.006 50.0% Residential Acres 78.6 42.9 5 9.5 89.9 270.85 Maximum Density With Current Zoning DU/total acres 12.5 12.5 37.5 12.5 15.9 DU/residential acres 25.0 50.0 50.0 25.0 34.4 Maximum Density With Proposed Zoning DU/total acres 25.0 50.0 150.0 25.0 49.2 DU/residential acres 50.0 200.0 200.0 50.0 106.7 Notes: Density bonus assumes 50 DU/acre for DTE and 200 DU/acre for DTC and DTB Existing dwelling units includes units currentiy under construction Maximum density caiculation assumes best case scenario under which there are no constraints to development(onysicai or otherwise)and all oeveiopments utilize the density Darius at the maximum number.of units. Sources: City of Sarasota Planning Department;Economics Research Associates. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 52 ,.. Table'22: Maxisnum;Potentsal Attainable,.Housing=Units:in:iheiD.owntown'.�YIixed-Use Zones DTE DTE DTC DTB "'Add-On Total Maximum Potential Attainable Housing_Units Proposed Zoriino Maximum Dwelling Units 3,927 8.579 11.9D1 4,494 28,901 Existing Dwelling Units 1.709 593 2.395 914 5.611 Net DU Capacity Under Proposed Zoning(New) 2,218 7,986 9,506 3,580 23,290 Maximum Potential Attainable Dwelling Units Percent Attainable 10% 10% 10% 10% 10% Maximum Potential Attainable DU(New) 222 799 951 358 . 2,329 Example 1:10%of Max.Net Capacity Utilized Percent Use of Density bonus 10% 10% 10911 10% Total New DUs 222 799 951 358 2,329 Required Attainable Dwelling Units Percent Attainable 10% 10% 10% 10% Potential Attainable DU(New) 22 8o 95 36 233 Example 2:20%of Max.Net Capacity Utilized Percent Use of Densitv Bonus 20% 20% 20% 20% Total New DUs 444 1,597 1,901, 716 4,658 Required'Attainable Dwelling_Units Percent Attainabie 10°. 10% 10% 10% Potential Attainable DU(New) 44 160 190 72 466 Notes: Density bonus assumes 50 DU/acre for DTE and 200 DU/acre for DTC and DTC. Mau mum Potential Atiaihebie housing Units calculation assumes nest case scenario under which there are no cohstramts to dwelooment(physical or otherwise)and all rt v obments WHIM the density bonus at the maximum number of units Sources:City of Sarasota Planning Department Economics ke,mamh Associates Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 53 i y Summa .�. The-.three-downtown;mtxed=used zonesmthe study area.provide:a:finite.amount of.land '..; d'ble for'development .av : Under.current zoning regulations;:the maximum:development capacity in the study.area.totals 9,327.:dwe'11' u 'is:(excluiiing.use of:th&:Dowmtown Residential..Overlay District or.DROD). Assuming the recommended density bonus policy were..enact ed;;.(with similar::to.the.:eurrent.DROD),:maximum residential..de�elopment ,....: ......:..: capacity would-:increase to a total of 28;901 dwelling units. This represents a potential maximum net capacity increase of 719574A.welling units versus the.-number of units allowed under the current zoning(excluding the DROD).. The maximum average density in the study area would increase from 34.4 DU/acre under current zoning(excluding DROD) to 106.7.DU/acre under-the proposed.zoning. .Itis important to note that such increased density.throughout the downtown is not a given for all sites due to a variety of -factors,lincluding market.conditions,parcel-specifics,andother factors. Furthermore, individual proposals would be reviewed on a case-by-case basis to determine if the proposal is appropriate for the specific location. Due to the large number offactorfinfluencing the specifics of each development project,it. is not possible to forecast how many of the potential attainable housing units will be built. However,based on experience in other communities with voluntary density bonus and attainable housing policies,-the number of attainable units actually built is likely to be significantly lower than the potential maximum,perhaps on the order of 10 to 20 percent of the maximum,which could result in approximately 230 to 470 attainable units in the downtown. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 54 A.0en ,ix A: P�rtid.p . ing Sta eholclers. Tho.:persons-sbelow.participated in the development of,this.report by attending .meetings/interviews with ERA and:City staff, contributing information,identifying issues, and suggesting:solutions "Pfieir.:participafion..and.knowledge.signif cantly improved the uaTi„ an. comprehensivenass.:of the:report andts;greatly.apprectated: Residents Y`-Neigtiborh66 1`Comnii ty.:'Representatives Kathleen:Baylis, Chairman,:Community Redevelopment Agency Advisor .Board Don Chaney,Gillispie Park Neighborhood Association Susan'Chapman,Hudson Bayou Neighborhood Association Dick Clapp,Indian.Beach Sapphire Shores Association:and Save Our Sarasota Marcia Gelinas, Central Coconut Neighborhood Association .Charles Githler,Vice Chairman,Community Redevelopment Agency Advisory Board Janice Green, Save Our Sarasota Kittie Kelly, Central Coconut Neighborhood Association Kelly Kirschner,Alta Vista Neighborhood Association Jude Levy,Laurel Pak Neighborhood Association Kate Lowman, Laurel Park Neighborhood Association Carol Reynolds, Save Our Sarasota Gretchen Serrie, Indian Beach Sapphire Shores Association Dick Sheldon,Lincoln Park Neighborhood Association and Save Our Sarasota Jon Sugar,Park East Neighborhood Association Stan Zimmerman,Alta Vista Neighborhood Association Developers / Brokers / Business Representatives Shaun Benderson, Leasing Representative,Benderson Development Company John A. "Jay"Brady,AICP,Executive Director, Gulf Coast Builders Exchange Joseph Cohen,Principal,J. Cohen Group Ian Black, CCIM,Ian Black Real Estate Christopher J.Brown, President, Sarasota Main Street Realty Ronald H.Burks,Quincy Investments, L.L.C. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainabie Housing Study Page 55 Craig P.!'Colbum Jr.,:Attomey at Law,Norton;Hammersley,Lopez&Skokso, P.A. Andy Don-, 5 Points Plaza Kathy Ervin,Residential Sales Associate,Hembree&Associates,Inca Bruce Franklin,President,ADP Group Larry Fineberg,Vice President Leasing,Benderson Development Company Joel Freedman,President,Freedman Consulting&Development LLC Brad Gaubatz, Studio 7 Architecture John Glickman John B. Harshman,Broker/President,Harshman&Company,.Inc. Joe R.Hembree,President,Hembree&Associates,Inc. David Horvarth,AIA,Architectural Director,Benderson Development Company Brett Hutchins,President,Casto.Southeast Linda Jones,Century 21 Real Estate David L.King,JD,Compliance Officer,VengroffWilliams&Associates Alex Lancaster,Attorney at Law,Lancaster&Eure Don Lawson,AIA,President,Lawson Group Uri Man,Vice President Residential Development,RAM Real Estate Jim Moynihan,President,JM Communities Wayne S.Morehead, President and CEO,Khason Development Rachel Neves,Hembree&Associates,Inc. Felix Power,President Elect, Sarasota Association of Realtors Steve Queior, CCE,President,The Greater Sarasota Chamber of Commerce Lynn Robbins, CRB, GRI,IMS,Director of Business Development,Coldwell Banker Residential Real Estate,Inc., Community Redevelopment Agency Advisory Board Rick Rudloff, Gillespie Park Villas,LLC Ed Sankey,Benderson Development Company Drayton Saunders,President,Michael Saunders&Co. Michael Saunders, CEO,President,Michael Saunders&Co. Economics Research Associates City of Sarasota Prbject No. 15939(2) Downtown Density Bonus and Attainable Housing Study Page 56 Tony_Souza,Executive Director,The Downtown Partnership of Sarasota Tony J.-Squitieii,Division President,Lennar Communities Marty Stype,Director-of:Construction,W.G.Mills,Inc. Robert K. Tolsma,PE,PPM, Vice President, CH2M HILL Harvey Vengroff,.President,Vengroff Williams&Associates Gerard Violette,.Executive.Director,Hospitality Services,Sarasota Memorial Hospital Thomas Williams,Executive Vice President,Kraft Construction Dan Zarkovacki,Fairfield Florida Companies Public Staff Chris Anderson,Housing Division Supervisor,Montgomery County John Burg,.Chief Planner, City of Sarasota Ryan Chapdelain,Planner, City of Sarasota Doug James,AICP, Chief Planner, City of Sarasota Susan Montgomery, Senior Planning Technician,City of Sarasota Jane N. Robinson,Director,City of Sarasota David L. Smith,AICP, Senior Planner, City of Sarasota Mike Taylor,AICP,Deputy Director,City of Sarasota Wendy Thomas, AICP, Manager Community Housing, Sarasota County Economics Research Associates City of Sarasota Project No. 15939 (.2) Downtown Density Bonus and Attainable Housing Study Page 57 a A.,p:en-dixFB; :'Sarasota'Po icy f ramewor In:addition to;un erstanding.the:Sarasota'housing maiket.and�the.downtown's housing b capacity ` tis usefullo.review:the City's planiiing anal housing.policy framework. This provides.context for,the potential_development.of.new attainable housing policies in the downtown: :.. .. Comprehensive Pian The City of Sarasota:has along history of Planning,-with.the city's first comprehensive plan adopted in 1925 and subsequent updates in 1960, 1972;1979,1986, 1989, and 1998. The plan,known as the Sarasota City Plan,is prepared in draft form by city staff and involved community stakeholders(e.g...residents,employers, developers),recornmended for approval by the city planning board,and ultimately.adopted by the city commission. In addition to.a periodic updating process,the.comprehensive plan may also be amended annually. :The.city is currently in the.process of updating the.1998 comprehensive plan, including the preparation of an Evaluation and Appraisal Report(EAR),with a new plan expected to be adopted in 2007. In compliance with the Florida Local Government Comprehensive.Planning and Land Development Regulation Act(1975)and the Florida Growth Management Act(1986),the Sarasota City-Plan includes the following ten chapters: Neighborhood;Housing; Environmental Protection;Recreation and Open Space;Utilities; Transportation;Future Land Use; Governmental Coordination; Capital Improvements;and Historic Preservation. The plan is approved and monitored by the Florida Department of Community Affairs (DCA). The overarching policies of the plan are the following vision and goal statements: Our Vision: A city of urban amenities with small town living and feeling. Our Goals: To be a safe place for people. To have viable neighborhoods working together as a community. To be an attractive and clean city that is aesthetically pleasing. To be a financially responsible government providing high quality services and infrastructure. To achieve economic viability-through healthy business and quality job opportunities. Each chapter includes two parts,the plan and support documents. The former(the plan) includes the following: intent and purpose; goals,objectives and action strategies; and attachments. The latter(support documents)includes the following: inventory and analysis; and appendices. While all of the plan's chapters are relevant to the provision of attainable housing in Sarasota,the Housing chapter is the most relevant and is briefly reviewed here. The following is the goal of the Housing chapter: Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Paae 58 I .§hall:zbe.the goal:of:the;Citv,,of:.Sarasotato.provide:opportunities'for safe, sanitary,land affordable:housing.to.meet:the-need:of,dR.City::residents while recogmztng the..private sector as:the::pnmary provider:of Housing. Supporting this goal are the`:following objectives(notelhat it'is beyond the scope of this report to include all of the corresponding action strategies): Objective 1 —New Construction: The"City shall continue to lenhance a City government/.private.:sector.association that encourages the private sector to provide new housing that: • -.meets.the:needs of city residents; . • . :is innovative:.and • is compatible with the City's:neighborhoods. Objective 2—Maintain Existing Housing.Stock: The City will continue to encourage the private sector to conserve,maintain and enhance the existing housing stock,including historic structures and sites. Objective 3—Maintaining and Attracting Moderate and Middle Income Families: Recognizing that.in 1990 approximately:two thirds of households within the City had annual household incomes of less than 535;000,.the City will pursue actions that maintain and attract moderate and middle income families. Objective 4—Housing for Populations of Special Needs: The City will continue to take maximum advantage of Federal and State incentive and funding programs in order to create maximum housing opportunities for the City's very low and lower income households and other households of special needs. Objective 5—Coordinate with Other Local Govemments and Private Sector: The City shall continue to coordinate housing programs with other local governments and the private sector. Objective 6—Neighborhood Quality: The City shall increase the desirability of residing in the City by improving the quality of City Neighborhoods. The Future Land Use Plan chapter of the Sarasota City Plan also is relevant the provision of attainable housing in Sarasota. The following is the goal of the Future Land Use Plan chapter: It shall be the goal of the City of Sarasota to achieve a high quality living environment through: • encouraging compatible land uses, • restoring and protecting the natural environment, and • providing facilities and services which meet the social economic needs of the community. Supporting this goal are the following objectives (again note that it is beyond the scope of this report to include all of the corresponding action strategies): Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Studv Paae 59 'Obiective.'1-:Land Use Classification: To create and mapdand use classifications • ,that•" • reflect'the.grouping of.,eompatible-tvDes.6flaiid.uses; • •provide:sufficient.acrease.io:meet:projected growth; • consider.:..the suitability.;of land for development and redevelopn-ient; • recognize:existing land uses; • reflect:the:availdbility.ofpublic utility-and facility capacities at adopted levels-of-service;:and • provide guidance in.preparing and.reviewing future requests for rezoning. Objective 2—'L•and.Development Rights(LDRs): The City shall make appropriate changes.to.the City's existing Land Development.Regulations(LDRs), including the,:zonmg code;in'.order to ensure continued consistency between-those regulations and the Sarasota City Plan. In.addition,the City may consider other -regulatory factors:for possible incorporation into the Land Development Regulations that are not issues of"consistency,"but which warrant consideration due,in part,to the developed character of the City. Objective 3_Development Review and Approval Process: To continue ensuring that future requests for"development approval"are consistent with the Sarasota City Plan. Objective 4—Downtown Master Plan: To implement components of the Downtown Master Plan consistent with.the Downtown Urban General and Downtown Urban Mixed-Use Land Use Classifications. (Amended by Ordinance No. 02-4349,December 17,2001.and Ordinance No. 02-4407,January 6, 2003). Objective 5—Preserving and Enhancing the Built Environment: To continue to preserve and enhance the physical environment by reducing blight, discouraging urban sprawl, encouraging aesthetic amenities and developing design standards that enhance compatibility. Objective 6—Historic,Archeological,Natural and Cultural Resources: To continue identifying,documenting, and protecting historic, archaeological.natural, and cultural resources. Objective 7—Establishing a Computerized Data Base: To establish and maintain a computerized land use data base for use by the public and private sectors in making land use decisions and to prepare studies pursuant to the Sarasota City Plan. Objective 8— Studies and Research: Prepare studies and conduct research to implement objectives and action strategies of the existing Sarasota City Plan and to serve as a foundation for updates to the Plan. Studies may be prepared by the City or by the private sector under the supervision of the City. Objective 9—Other Jurisdictions and Special Authorities: To continue to promote the development of compatible land use patterns between those governed by the City Commission and those governed by other jurisdictions or special authorities. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Paae 60 Objective.l.0: Annexation:;`;Prior'.to the initiation of.any:::annexation within the City's Urban Service'Boundary;the City will prepare an appropriate report that Will: `Figure;4;!Future:Land...Use;':Zoning;°.and PotentiaUEdge:Zonui i ?Mtes Map;..City of:Sarasota, . %J i S ..I :t $ 4 , I :rrrrr• .•�. ISA : z 'C1i7 •�+ s - F , ,.4 Rte' i 1:I1^ tlJ 1\ ,t ` !,(;;I?lltltla' • Future Land Use Map Classfflcations Single Family(Low Density) Potential Edge Zoning Sites Under Study Single Family(Moderate Density) -•• 1.Central Cocoanut Area Multiple Family(Moderate Density) 2.RasemaryNOphborhood 3.4th Street Lots It's.•',:,••,);Multiple Family(Medium Density) 4.Perk East Nelghbontood(west of Lime Avenue) � ff,jikj Mixed Residential 5.Park East Neighbomood least of LlmerAvenue) — ` G.School Avenue/Ron Burks Site 4 Neighborhood Office 7.Wood street Site isouth of Payne Park) "Community Office/institutional Parcels ii Neighborhood Commercial Zoning District Boundary Community Commercial Production intensive Commercial ®Resort Residential Pe Open S ce-Recreational-Conservation P Downtown urban General Downtown Urban Mixed-Use ®Metropolitan/Regional Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 62 The.major::development:parameters of the:Downtown Urban Mixed Use land use classification are:shown in':Table.23.`:inaddition'to the major:development parameters,the able..also:notes_tlie:corres .ondericebetiween.:theFuture:.Larid:li.se:classifications P ;;(November 10,":1998);Downtown'�IlasterPlan 2020:zons. 69+(adopted January 22, 2001), the owntown;Code'° 'adg'ted 2'.Q.04:j t and'the.:newDo unto,vn'Code:zones.(adopted September 05). ;.Accordtng to the Evaluation and Appraisal.Report(EAR)dated.October 11, ... _ - 2 ._... OOS�: vhicfias:bein `'ared:as``a' aid arasota Ci Plan 998 ::.... . ..... :o e�:: ter.q e:� ri :..: ..::..::.a...: ..:..... .. 1n..2Q04. .the:. .r';ado feel a"new'Dovntovn.:.Code:1966,:nex'tsection to implement _ ...:.:: .,i ��'�.: ::-:i.:,.'.'!�:. . .:... ,: .'(:...:•:::;r.'..;....:...:. both':of:these;land;usexelassificatioris.:;:i:e: Downtowri`:Urk an�:General and L... [ t.Downtown.Urban'1VIixed {Jse :"Th&-M ntown Code Includes four new zoning stncts:wlueh;:are-DowntownNei . borhood'D.ouvntownsEd e Downtown Core. and:Downtown=Ba"front e3iso etscorres ond-t `:fiuezonesfromthe _:. owntown2 astern:• aria ..an :,W. c Tare,i•enti�te .' e:text o e anuse si'fications 'however°ttie=names used:w>,theDo hi6iM Code were abanged 1: .'fnorn:,fhe:.term n"'I P:used in the<Downtown;M aster,Plan:2.020 and comprehensive 1.::.,. ,. ri, lan The: euised�land:use classif cationst:sfi`ould'refer',fo;tfi`ose new zone district -names as',descnbed below to educeiconfusion between the revised'.comprehensive •, disLJ lan"'aandt7ie=im lenientin zoning; ticis P.. . g�: : - ...... %:: F'igure4?shows'1N6IDown towniL7rlian1lvI ed Use classification,shown in brown,with the underl";in':tonin districts::DouvntownEde(DTE),Downtown.Core::DTC and Downtown'Bavfiont,;..TB: `sAlso'rshown..are other land use classifications and underlying zoning districts;such'ast}ieD.owritouvn Urban General classification and the underlying TI ':zgning district. Note that the Downtown Neighborhood Downfown:Nei:khboth'oo'd; D (DTN)'zoning di stinct;:isnot'un er::consideration for the downtown density bonus. Outlined in red on Figure 4 are the following nine additional areas"downtown edge" areas that are under consideration by the City of Sarasota for addition to the Downtown Urban Mixed Use classification and;if included, like all properties in the Downtown Urban Mixed Use classification, could be subject to a downtown attainable housing density, bonus: • Area 1 —Central Coconut: 78.12 acres; • Area 2—Rosemary Neighborhood: 28.80 acres; • Area 3 —4`h Street Lots: 3.8 acres; • Area 4—Park East(west of Lime Ave.): 28.32 acres; • Area j —Park East(east of Lime Ave.): 22.44 acres; • Area 6— School Ave./Ron Burks Site: 9.43 acres; and • Area 7—Wood Street Site: 8.89 acres. For reference purposes,the City's neighborhoods are show in Figure 5. 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'Y`�'il`4 :u.{:a :"�.F:f",'.c�„fr.pl.:•.• NS.•:�. '.!,15.,: `... OL ;;r:� # .. 4r-4�r�tSs...v�'�, :ix:.n, ,.r %Y„'•,,�:.:: {. ,,�. rl �.C1:Q1:. f;"�� ^u: •" �:vizi} �.A ?`r "'i�. ..w,Y s�, •i�'x.kk.}�.....�,» 'A 9�,.fi:r. e.. a' Ln •y :..., .5n'?:r..?a:S;: C;�;, r�«r'rr ,tiF":��' :frdv-,<4�'.'.,'':":� `'.._�,.'::" a;, 'ad d �:�_3�>rum::�,,:Y:;a's=i?a:+��"�k..;:'::tr?s��f "< �:r'i"F" }•,r �i`�' s. P yAt ,� Vim ._Wi Y•� I'a-4�A�..- � . 41187 ; '. 'Ude 'Y�4�ig`• _ 'O. I" r '.'fa”( r L. cn W:.. µ; Downfo:wn Master Plan.:202;0,ancl-:D wntown:Coale TheiDocantowWl asterPlan°2020 'DIVIP': :was'>: to'tired b'."#he.``.lanni'n"fu n:Duan Plater- .......r,._,.....:.. Z..berk DPZ 'd 'd tedib::the?e. C.o n mssi n n`20`0 : esolution No. O1R- .:,.:.......,_._,,.....:-,F,•„ R. ahe�T�MP.'on matedu ith:th e C ,.., 3 ...,::.I._.....:._.,:.....:...: ......:6.):.y:,�' ..g. e!.need;�fou•'cTafe'th :Co Are ' astlie:IDowririolvn'Sar.:asota:.MasterPlan or RAP1analsknownga� C ::•::: 17 Tomonrow tvulthT:addttional,:areasad'declinorder toco:ordin`atei iariin :.witl .ad+scent areas. 7....::I,.. .. _y...:1 S s. u::are;-uiile.area s�own an i"'``e 6. App to�he a Pro�umaelq lanntn refforts'::the DMR'.s_stated`:=.conirii ution:is as follows: , r. The Won;; io � Ma.s 6tf-P - "'' �:='',,_;::.=,:<:_; ::'.:;,•r,•-:: tm .. ..on but on.of,this . 1anis ai`;incease..in'; recis%on`!stlieassi ent of ..and,.the.. royisloniofrttools;;for im"Iementation:::�.Towa:d:thatend :the DNIP .. ... ...,r. fi. e:ma or.:the a .. .:...:... ... _....... :. ... ....i.....,:,•.. ,:Ian .. ...._. .. ::I..:. . ... ..:... ..,.. ..�.. ..1. . .... .. ,.. - n •,I• ... P l ........:. :..:. ::...... . .. .......,.Connectm ,.the..Downtown"toothe'Bdy front;=: sm .I: :s ri��of'Wallc ets�'°�� ,r in. • A.Balanced:T�ans ortationaS;. stem:::'; F.V • Walk-toeghFior3�oods'� • Vic is A!an Ci hnpro�em�en . ........... .................. Strategic,Pragmatic Implementation. DPZ also prepared a Downtown Code,which is intended to implement the land use components of the DMP. The Downtown Code is based on the SmartCode, a model code developed by the Duany Plater-Zyberk&Company(DPZ). The SmartCode has been tailored to fit the City of Sarasota and reformatted to work within the City's Zoning Code (2002 Ed.). The Downtown Code identifies a series of Downtown Zone Districts that include Downtown Neighborhood(DTN),Downtown Edge(DTE),Downtown Core (DTC) and Downtown Bayfront(DTB). As noted in an August 2002 Preliminary Staff Draft of the proposed"Downtown Code'.',the intent and purpose of these districts is to: Produce an urban area that implements the Downtown Master Plan 2020 and fulfills the goals, objectives and policies of the Downtown Urban General and Downtown Urban Mixed-Use land use classifications of the Sarasota City Plan. Subsequent to adoption of the DMP in January 2001,proposed amendments to the City's Comprehensive Plan(Sarasota City Plan)were prepared to provide consistency between the DMP and the two plans: The Comprehensive Plan amendment was adopted by the City Commission in December 2001 and subsequently submitted to the Florida Department of Community Affairs(DCA). In February 2002,DCA issued a Notice of Intent to find the plan to be in compliance with Chapter 163 of the Florida Statutes,the Local Government Comprehensive Planning and Land Development Act. Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Page 66 .:•.�':............._.. .....a._.. Fi urer:6' D.o. own lVlaster:'Plan';2020'iStnd::;Areas Ci-:ofSarasota0.1 ; g....: ...:. ..........'::: .Y �:. .. ._.........._._.........._..�......-._.- .- V, I. ..� .. -.::.,,wrv:::,.•5-.rn..:'r:.:': `:1;'.. �,'��' i.ji��;i:;.:5:'.':..h r : "6 ,L s. iennrrirmr�u{` A ��� S , r i r t RR' ... ........ .._.. ......:..:... I e 1 _ i r rrrrra�r:r�P:r::sr�r;rrm:rrs;:-rr:r:•—�--;:t_....,r....rrrs-.... ..... ...................._... .......:..::.. r�rrr: r.rrrrrrr.,rr,rr,r::;,r rrr.rrr„rr,rrr..r..„r.,r,� rr� „rrrr:.rrrr.r.r.rrrrrrr,.rrrrrr,...,rr.::,�,r,,.rrr,rrr.r:rr. rr r.r. .---” 7F Source: I� Source: Downtown Master Plan 2020(2001) Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 67 In March;2002;:a.group.of;petitioners.:filed:a:challenge.to-the;:plan's determination of complianceAgainst:the City of:S.arasota and the Department.of Community Affairs. These petitioners iriclude:''.'The:.Associafion of Downtown`CommercalP.roperty Owners 'Inc.; Tlie.'Argus.% ounda. on;:Gulf:Coast;Builclerg.:xc-hange,Inc.;Remark.Sarasota Quay,Inc.; and:Wynnton:'Sarasota:II i invited Partne:ship..,::; :• ':..: though'the:chaperigevassettled sERAwasTetained.by the City to evaluate the etttioners rmci le challen a the p...:::..:::.... ..:..::P P.::. '......;.:....`:... g.; .:..•:..:contention;that;ttie.'Downtown Code's proposed reduatoriinbuildin hei lits,and.des re;uueinerits,such.as:buildin "recesses"would : Tesult.m.such.:a•dimmution..ofvalueto:thetrpropertres so.as::to,constitute ataking. The . height:restriction::a hes"to ro ertieszlocatad', tlie`T owntown:Core and portions of the rq.'oseil Wvw ownr.Ed a zone dtstricts;::ERAsanal. zed;the .ptential impact of the code anal zm roto a sites for office . .:......:..:..:..:.:. ..:g bY .:.....:.y......g P::,.:.. 3'P..:: :;and'housm ;:and%on:'A:streets as well as other case ,6. , s titioners:ahid",:Ci C.oio ;an3anuay: '2003htmfeed to settle the challeng. Asia.-res_Wt;the DW and the.ComprehensivePl " an Amendment adopted on December 16 : 2.O.O.I 1i.ecanie;'effecti'ueain;;AAril'-200.3 '::,'P WMWwntown Code was adopted June 7,2004 ._..... (Ord nanc:e7No:'04:=.45:31 ): On S'eptember:°7,200.5,`four';ordinances relating to the.Downtown.Rezone were adopted by the'.Sarasota'City Commission <Tlie,lrezoning of the Downtown area will allow the Downtown:Code•to';be�appiied,to.nore than.1;800 parcels in the Downtown area. The following summarizes the four:;adopted rezonings(see Figure 7): • Ordinance`No:''.05 L628:``To rezone various:properties located in the Gillespie Park and Park East Neighborhoods and more particularly described herein to the Downtown Neighborhood(DTI)Zone District,an Urban Zone District,generally appropriate for residential neighborhoods located in close proximity to Downtown; allowing a maximum of twelve(12)dwelling units per acre and a maximum building height of three (3)stories; allowing for certain development rights under existing zoning to temporarily continue and providing for vesting of certain development rights as more fully specified'herein;providing for the severability of the parts hereof; etc. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Paae 68 i R A • 1 1 1 1 1 1 ! ! 1 1 1 11 1 I I 1 1 , • • 1 1 A • 1 ��h� �� 0®Y3Y �n•r•rei�� qua®a�ra �� -E✓IP) ®_ lm EBL�P�I�P uw.u•°: •'a"!P<bfdl• ceiol.>'�aAeAlllARi imAGiiSOItSi! ®�I �� - 1ocn ar, ctxecdlt— .e•me�a .aclsetmAl�slxatxm m0 Hyl a! - tSk16e11uG1 ul®fu® 6l�el Bin{ mlel®urD 10� I P�Iuenolm•mleollm ®1611�i lionlilll® IRAlt m I �I1 1e111llete•••®•moo ®emas u t®®iltll IIItAII■ E�f0E1 M =111AIIIAIit;'g r A ':= i&`�b[�Q19.. -.wv lIEIIIIIAI '+LC9m' °®I{➢i3 IIIII�III�®-IF"fl®®1 a IIAISAIlm eulgllm ut ®PBl{II11=�tl•®ml Iln.��° .�re ➢G{>� WI�etll®Pd6• E3��m �11C.a 11 111mo 1. o rs ?rrs �� _eutte:lilt1�11i1•n1®E•1—.®m ^. p[jell.1L1?1t': e. me i Eu.. E� 6§ 1�®m. �' —Allt®jaBYleteB i 1 �7 .�. A1111215': 1BfT illlu�ll°e�.�m 71li � F 7d�! ° ..[ i17YlIi8®•IIW Lltlllll® :111lIPE 7fA111lelltl•m�t®i;Nis .A�� ��®®eE;J'- l.!®F9IAAIAf1111®-09 11111i: fTr'1 II'.nexnemlAi 911181 p7sx! '®PP� rpCC9E'�!R.".IBIIy6?JAIll7t15 `7r1^J[tt9�.l[�?II°A�: =:tn tm nxu.`1917'1m91R`V z t_meu( 1:tuta hli. m-og oEAd[t 3 IIlIFII@Ah t E"H431 �'eittMl,"",y l iIPICF YB ^1yL�uJOB,. }�! ° t 1A tl fr^Is girl Y1 r11� I 1 iii a Ir 1 -�� .i �d �� iw! -11 s4 ! i„of 1 1 L � IIICsk� ii tlr U.. � ILII��itl i� I i!1 [t�� 1 dl fJ� i{ �._,'� 1 1 Gl 4� yw�s� r 1�• �,4 10nr �'IF�19x 1 7 Nil II 4t 1 Idl. Fli 1 1 J ,! Ilt T m kk F.1� y - jj 1�! e I� laJ r I ! 1_l,i id °I•YU°" 61 y r1 fr 9'a.��r:-' 1€ �j^..(P F! dl( i..r I I� I � j�V mit �..�®ii."TII• r+, Ihf lul1�I€k4r����ut1 p1 PIFi14 90Y �1I! � 11I�-�� .: !rl .�1112E l�>��•�®®®•a�lllll°g�€11 i �: u►��m1 ■ 9Jia 'P Irc,1m . 1ry1m .1 .. vS�r i1�,:> Ilt�lll)1�6•L=■ utl°n11J giN�IlM Arps o- ��. c 1;"111111 _°°=•s•10:11�ItE� ��; �l�_... �...� � 1i;1t 4� I:� iii i i�ne�®•m ua � / _ �'1✓ � G��e�I,�111/.Ililllilell==u Elllm u��• Ie1i 1. 1 _ ��ti"�p� :3169111E9=-e Imo•:0"mo om ,.E t a. iGS�.II�t� ��[•l`E. yr`� 1 Ii _ IRSIV • Ell. • Ordinance'No-05-4629:.`To rezone various proberties located in Downtown ... ........;.. .. :.Sarasota and:'more.varttcularly described:herein to.the Downtown Edge (DTE) Zone District, an urban% mixed use;Zone District;generally appropriate for properties located adjacent to:residential neighborhoods; allowing a maximum of 25.dwelling units;.per.acre and a maximum buildingrheight of five stories; except for the,portion of a site within 100 feet of property zoned:DTN or RSM-9 where.a lower.height limit shall apply as more fully specified in Table V1-1003 of the`Downtown Code; allowing for certain development rights under existing .zoning to temporarily continue and providing for vesting of certain development rights.as.more.fully specified herein; etc. • Ordinance No.05-4630: To rezone various properties located in Downtown Sarasota and more particularly described herein to the Downtown Core (DTC) Zone District, an urban mixed use zone district generally appropriate for the heart of downtown,.along the Main Street corridor from Five Points to School Avenue; allowing a maximum of 50 dwelling units per acre and a maximum building height often(10)..stories; (except that two-.buildings up to a maximum of 180 feet in height may-.be approved within the area bounded by Fruitville Road,Washington Blvd.,Ringling Blvd. and Pineapple Ave. as provided in Sec. VI-1005G of the Downtown Code; and except that an existing building over 10 stories in height may be voluntarily or involuntarily removed,demolished or destroyed and replaced with a new building of the same height or 10 stones,whichever is greater); allowing for certain development rights under existing zoning.to temporarily continue and providing for vesting of certain development rights as more fully specified herein; etc. • Ordinance No. 05-4631: To rezone various properties located in Downtown Sarasota and more particularly described herein to the Downtown Bayfront(DTB) Zone District, an Urban mixed use Zone District generally appropriate for the Downtown Sarasota Bay Front areas between Mound Street and I&Street which are not devoted to recreational uses; allowing a maximum of 50 dwelling units per acre and a maximum building height of eighteen(18) stories; allowing for certain development rights under existing zoning to temporarily continue and providing for vesting of certain development rights as more fully specified herein; etc. Downtown Residential Overlay District (DROD) In August 2003,the City Commission adopted the Downtown Residential Overlay District (DROD),which is Article VI: Zone Districts,Division 9. Special Public Interest Overlay Districts, Section VI-906,of the City of Sarasota Zoning Code. The DROD is intended to encourage residential development in the downtown area and to implement Objective 2- Land Development Regulations(LDRs), Action Strategy-2.15 of the Sarasota City Plan, Future Land Use chapter: A maximum residential density up to two-hundred(200)dwelling units per acre may be developed on sites within the area depicted on Illustration LU-12. Downtown Residential Overlay District[see Figure 8],but the average density Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 70 shall not:exceed fifty(50) dwelling units per acre within.the overlay district. Deyelopments.allowing increased dwelling:unit density,in accordance with this provision may be lapproved.only aftei public hearings:held by the Planning Board and City:Commission: Criteria for.approval shall::be:incorporated into the City's land development regulations. According.tothe.City's.Zoning<Code,Ahe following is the intent.and purpose of the DROD: The Downtown Residential Overlay.District(DROD)and the increased residential unit density allowable within the overlay-district are intended to: 1. Implement the Sarasota City Plan as amended by Ordinances 02-4349 and 02-4407(downtown master plan based amendments)and by Ordinance 03-4449(downtown residential overlay district amendment). 2. Further.the goals and policies of the state comprehensive plan, F.S. ch. 187. 3. Increase the number of persons permanently residing within the boundaries of the overlay district in order:to enhance the econornic vitality of downtown. 4. Create an incentive to make it more economically feasible for private developers to include moderately.priced dwelling units in new residential developments constructed downtown. 5. To assist in the provision of affordable housing for low and moderate income families in the city by requiring a contribution to an affordable housing trust fund from developers who receive approval to build up to the increased level of dwelling unit density allowed within the overlay district in exchange for the increase in density. 6. To assist in the development of transit facilities within the city by requiring a contribution to a transit development trust fund from developers who receive approval to build up to the increased level of dwelling unit density allowed within the overlay district in exchange for the increase in density. The DROD allows for increased development standards on a case-by-case basis, with consideration at a public hearing by the Planning Board and at a public hearing by the City Commission. Within the DROD,up to 200 dwelling units(DU)per acre may be developed, although the average density within the DROD shall not exceed 50 DU per acre (excluding public rights of way in both cases) and the total number of DUs within the DROD may not exceed 2,302 units. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 71 ; ,. Jt. - - Fi ure 8 ',:'D.owntown`Residentia]'Uver]av District,Ci =of,Sarasota'. 1]leistr�:tinii LLT:.1'? „ 3oer3 .=ip. t.tet - i . r :. . � � . 4WT .1111 F1 I F1 �iJ ltl1I1L 1LJ ::=:-:= _J.I a t!.,. EF. 1 7:inaa,:d'r.;:i ' F x ilrr:�J4i i�,7"(•- I I 5 ... :.. .�,c,� t r�;aT;s�•�:r:>,�+i, �i�.:�,k�?ir`>ii3'w'tit{�� :�� �._. MIN 9: •\w` �ilf „: �-1�:�.i;yy:,�°:i;.. .. 'I,.;iii i ':'•''�,�w,1�i:;✓�L�. I ...�,��,. �_#" hfi� S ItiT , . 17 N, 71. L071 �� ti `l�4�'`'y J�J�••. � � I L-L±L1 ri1= I Downtown Residential Overtay District 0 500 1.900 at Parcets SaLmm: City of Sarasota.DMervewant of Mannina and DevakwMenL 2002 :voneao Ciro Mimi•!•mast Lem)lnrel3an AuptrE C 3{03 Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 72 ". In return.for:<the.additional density.,%an;applicant must make:a.contribution to the city's housing and::transit:development:.trust`:fun ds.in:the.amount.of 3.0 percent of actual initial sales pace.of'eaeh approved DU.over sand Above:the number of DUs would support at 50 DUs:per acre fess.,. ose;DTJs in.the project t}iat do.not exceed 1,250 sq. ft.in size. The contribution,;-isREV ded 70 0.percent>to'.the:c'it7.s affordable housing trust fund amd 30.0 percent to:fhe-'ic ty's transit developmentirust+:fund. Asa part of.,the applications onapproval-to-increase:density within the DROD,the applicant:must•provide:the;following iiiformation: ''.Th6Additi6ndlZensity requested. 2. The nuimer::and:square footage of each,proposed unit by type(e.g., efficiency, one.b0dro6m;.two:bedroom, etc.).. 3. Anticipated sale,price orrental rate of each unit by.type. 4. The market rental.rates:or:sales prices:of dwelling units.of comparable size and type within the market areas of the.subjectproperty. 5. .An.expilanation'.6f.h6w;0.increased-density.-allowable within the DROD on the specific site..proposed:for-development will.further the intent and purpose of the DROD as stated.-in:section VI-906(a).:[see intent and purpose above]. 6. Any additional.information required by administrative regulation. 7. An explanation of.how the developer.proposed to ensure that those additional dwelling units identified in.an agreement between the city and the developer will be owner occupied as required by section VI-9060). [Requires owner occupation for 10 years from the date a certificate of occupancy is issued]. In addition to the general standards of review applied to other projects,the applicant must also demonstrate that the additional density, if allowed, shall: 1. Generate infill development or redevelopment. 2. Broaden the range of available housing opportunities downtown. 3. Maximize*the use of existing public facilities (e.g., existing infrastructure). 4. The applicant shall further demonstrate that at least 20 percent of the dwelling units depicted on the site plan will not exceed a maximum of 1.250 square feet in size. Prior to the issuance of a building permit;the developerand the city must enter into a written agreement identifying the bonus dwelling units subject to a required contribution, with a lien placed on the properties that is payable upon sale of the units. An equal number of bonus density units must be priced above and below the median sales price for all units in the project(this is intended to ensure that these units are representative of varying price ranges within the project). Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Paoe 73 r On 7une;5;';:2005 `the Cit 'Commadopted Ord.:No.-05-.4606,:under!which the DROD Will.continue.in.effect.for a.period:of:.twoyears:from the:date of adoption,after which no applications.for site'plan.approval incorporating a request for additional dwelling unit density shall be accepted. At#ainable:Residential.Overlay'.District (AROD) The DowntowniPatmership of Sarasotahas asked the City..to considerits proposal for an Attainable ResidentialOverlay District.(ARO D). :The AROD.is intended to facilitate and expedite the creation of attainable housing in the downtown by creating an overlay district similar to the DROD. The.AROD.is proposed to have the following criteria/conditions: • Downtown Edge(DTE): Increase density to 100 dwelling units per acre from 25 dwelling units per acre. • Downtown Core(DTC): Increase density to 200 dwelling units per acre from 50 dwelling units per acre. • Attainable dwelling units should sell for$154,658 to 5246,363,making them available to households earning from$44,701 (Moderate Income)to $67,080 (Near Market Income),based on a.family of.four(4)and reflect the Area Median Income (AMI)for Sarasota County from the U.S.Department of Housing and Urban Development(HUD). • The City should provide financial incentives using Tax Increment Financing (TIF)and/or Affordable Housing Trust Funds to help defray the cost of the . development expenses below. Subsidies would be proportionate to the number of attainable housing units created that meet the criteria. a) Impact fees; b) Permit fees; c) Utility fees; and d) Public infrastructure. • Based on the recommended criteria from the Downtown Partnership's 2004 White Paper, Housing and the Downtown Code,the following recommendations should be discussed: a) No reselling of units prior to closing except back to developer; b) Homesteading status for all purchasers(suggest three years); and c) No renting for five(5)years from first occupancy. • For sales within five(5)years of first occupancy,a share of any capital gains made is payable to the City of Sarasota's Affordable Trust Fund as follows: 1. Sale in year 1: 80.0 percent 2. Sale in year 2: 60.0 percent 3. Sale in year 3: 40.0 percent 4. Sale in year 4: 20.0 percent 5. Sale in year 5: 0.0 percent Economics Research Associates City of Sarasota Proiect No. 15939(2) Downtown Density Bonus and Attainable Housing Study Page 74 i. Note:;that:the AROD:..does not.include.any.provision.for what.,proportion.of the bonus units .::(or.proportion.oftotalunits):should be attaindble units.::. Consolidated Plan The Sarasota.Office of Housing and.Community Development.(OHCD)is a joint effort of the governments of the.City of Sarasota and Sarasota County..It adrriinisters a variety of affordable:housing and..community development program s-for..the benefit of all residents of Sarasota County. The OHCD was:created by an:Interlocal Agreement.approved by the City Commission and the Board of County Commissioners.. In order to receive direct assistance for certain affordable housing and community development programs,the U.S.Department of Housing and.Urban Development(HUD) requires that all local governments have an approved document titled a Consolidated Plan, The Consolidated Plan describes what a community's intentions are in the realm of addressing the housing, community/economic development, and homelessness issues,but also serves as process that requires extensive community participation. The Consolidated Plan is a requirement for funding under the following programs: • Community Development Block Grant(CDBG)received by the City and County of Sarasota; HOME Investments Partnerships(HOME); and • Housing Opportunities for Persons with AIDS (HOPWA). OHCD is required to submit the Consolidated Plan to.HUD at least once every five years. Acting through the Sarasota County Board of Commissioners and the Sarasota City Commission, OHCD submitted its most recent Consolidated Plan in August 2005. The Plan covers fiscal years 2006 though 2010 and includes a five-year strategy that, establishes priorities, identifies resources available to meet goals and objectives and establishes a one-year Action Plan; additional one-year Action Plans will be prepared. Based upon the input received from the community,the following priorities were identified for funding under the Consolidated Plan for 2005-2010: • Public housing revitalization; • Sustaining the supply of affordable single-family homes; • Maintaining the affordable single-family housing stock,public facilities, economic development; and • Neighborhood improvements. The Community Development Advisory Committee assisted in the preparation of the five year Consolidated Plan. The Sarasota City Commission and the Sarasota County Board of Commissioners appointed the Committee,which met on a regular basis for nine months to provide a forum for public input and to provide guidance throughout the plan writing process. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Pace 75 :L..........; 4 I - sarasci&l. ount Com rehensive:kPlan Like.:.the:-:City of Sarasota;;SarasotaiCountysis:m the.;process.of:updating the Sarasota County:.Comprehensive Plan. :The county is much further:alok in.the process,having transmitted its'Evaluation and Appraisal Review-(EAR)=based:Comprehensive Plan -:amendments twthe;Florida Department:of.Community;Affairs;'(DCA)in December 2005. This includes proposed amendments to�th6-Housing'Chapter and.the Future Land Use Chapter. The Future Land.Use Chapter•addressed the.location.and density of housing within.the County and:the Housing Chaptendddresse's the:types:and costs of housing. Public hearings for adoption of the County's plan are expected to start in April 2006. According to the Future Land Use Plansection,the fbllowmi is the overarching goal of the plan: Planning for a sustainable communityis the overarching theme of the Sarasota County Comprehensive Plan. Sarasota County government is committed to lead by example,promote..public participation and work in community partnership to improve our.quality.of life and protect-the natural systems that support life. For the purpose of.the Comprehensive Plan;sustainability is defined as aligning the built environment and.socioeconomic activities with the natural systems that support life while meeting the needs of the present generation without compromising.the ability of future generations to meet their needs. The Housing Chapter of the Sarasota County Comprehensive Plan is completely new. The chapter has the following major components, each of which is reviewed below: • Introduction • Income Categories • Definitions • Issues to Address the Provision of Housing • Data Analysis • Housing Plan Overall,the Housing Chapter is focused on establishing programs and actions that will o meet the county's goal of providing housing for residents with varied needs, incomes and ages. This focus is clearly set out in the introduction,which after that from 2004 to 2005 housing prices increased by 36 percent versus a 3 percent increase in household income, states the following: Therefore,the primary goal of this Housing Chapter is to encourage a variety of housing types and prices in Sarasota County. The chapter seeks to create a housing climate that allows young families and older residents to remain in the community and allows the county's workforce to live and work here, while respecting the environmental resources that have made Sarasota the unique community that it is today. Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Page 76 The following income categones..are then defined:': Extreniel' -,-,Low _.Y oss'.income'af'or";below 30 percent :.Y .::.: of::the area median income •..;;:;Uery.-Low;Income:Households.with annual gross income:between 30 percent and 50::of-area.median:;income...: • Low,.1 come:Households"mith.:annual.gross incomes between 50 percent and 80.: ercent of area median.income • Moderate Income:Households with.annual gross incomebetween 80 percent and 100 of area median income. A.number of terms used in the Housing Chapter are.defined,with the following ..particularly relevant: . • Affordable Housing: Housing in which monthly rents including utilities or monthly mortgage payments including property taxes and insurance do not exceed 30 percent of that.amount which'.represents the.percentage of the area median annual income for the households.making less:than 100 percent of area median income calibrated to household size. • Sustainable'Housing: Housing options,which meet the needs of present - citizens without compromising the needs of future citizens while at the same time facilitating the social,environmental,and economic vitality of the community. • Work-force Housing: Housing,regardless of tenure,which is affordable housing to households earning between 60 percent and.100 percent of Area Median Income, calibrated to household size(e.g., I-person household,2- person household, 3-person household, etc.). The housing issues section identifies the following six major issues, each of which is addressed in the policies section reviewed below: housing creation;community housing; special needs housing; housing assistance;neighborhoods; and sustainable housing. The data analysis section of the chapter details the county's historic and projected population.growth,housing prices.and sales characteristics(both for sale and rental). This information is summarized in.tables.and graphs-that present information for both the county as a whole and the unincorporated county only. The Housing Chapter policies are presented in the form of a goal,objectives, and policies. The following is the goal of the Housing Chapter: Enhance Sarasota County's sustainability as a community by encouraging the development of affordable, safe,and sanitary housing with variety in type, density, size,tenure(rental and ownership), cost, and in various locations to accommodate the needs,preferences and financial capabilities of current and future residents. :Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 77 X11!! Supporting ortin this,.goal are the,following:obi ectives: note.that it be and the scop a of this PP.. .. g ... g.. . g. :J (. Y P report'to:wclude-all:of the-Corresponding'policies):': .. .... .. Objective 1.1 Housing Creation: The.County:shall continue to enhance a County associationthat.encou .thegovernment/privatesector: . rito provide -new::housing".that:::Encourages the market1b.provide,ample diversity in housing 'types and affordability:levels:to accommodate'present:and future housing need of Sarasota.Countyresidents.' Objective 1.2 Community Housing: 'Increase the supply of housing affordable for extremely low,very low,low and moderate-income future and existing residents. Objective 1.3 Special Needs Housing:'Provide for thedevelopment of accessible housing and appropriate supportive services so that equal housing opportunities are available to special needs populations. Objective 1.4 Housing Assistance: Provide increased opportunities for low and moderate-income residents to rent or purchase homes. V. Objective 1.5 Neighborhoods: Conserve.and improve..housing,'neighborhoods and the health of residents throughout Sarasota County and in designated target areas. Objective 1.6'Ensure..a.compatible relationship,between new.housing and circulation.patterns and encourage.pedestrian and bicycle interconnectivity and transit friendlycommunities in order to minimize traffic impacts and promote healthy lifestyles. The Future Land Use Chapter of the Sarasota County Comprehensive Plan is also new. The chapter has the following major components, each of which is reviewed below: • Introduction • Inventory • Analysis • Summary • Future Land Use Plan • Guiding Principles The Future Land Use Plan chapter of the Sarasota County Comprehensive Plan also is relevant to the provision of attainable housing in Sarasota County. The following are the goals of the Future Land Use Plan chapter(note that it is beyond the scope of this report to include all of the corresponding objectives and policies): Goal 1: Preserve,protect and restore the integrity of the natural environment; historic and archeological resources,neighborhoods and preserve agricultural uses consistent with resource protection. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Paoe 78 .Goal:2:: characteristics and the availability.of faoiliiies::and-ensure:.that:sufficient:acreage is:.designated for urban uses.to accommodate the projected.,population growth.: Goai=3 ::Promote that,orderly:developm.ent.and redevelopment of the land uses needed to accommodate lie:projectedpgpulation:growth.to the extent such growth is;financially.feasible,and:consistentwith the:other:goals of the Comprehensive Plan and the quality of life of.the.people of.Sarasota`County. Goal 4: `:Promote.:and encourage redevelopment within the Urban Service Area. . Goal 5: Ensure that the County's planning programs can meet the varied planning needs of the community. .... This Future Land Use Chapter:continues with a chart identifyingthe correspondence between various land use designation and zoning districts as well as a definition of the zoningdistrict names and principle uses.therein. Sarasota County.Zoning Ordinance - Density.Bonus and Affordable Housing'Overlay District In July 2004,the Sarasota County Board of Commissioners took a significant step toward addressingcommunity:housing needs by adopting new zoning regulations in designated Village Planned.D.evelopment Districts. The new code requires that a mandatory minimum of.15 percent of dwelling units in the Village be affordable, of which 10 percent must be affordable to households at or below 80 percent of AM1 and at least five percent must be affordable to households at or below 100 percent of AMI. The regulations also provide for increasing the allowable density up to 6 DU/acre to help offset the additional cost of developing the affordable units. More recently Sarasota County drafted an affordable housing policy in 2005 as part of its comprehensive plan amendment process and the policy is currently under review at the Florida State Department of Community Affairs. The basic intent of the county s housing policy is to maintain a diverse population,to enable current and future residents to live near where they work, and to emphasize sustainable practices that will avoid overtaxing the county's resources. To define which households are eligible for various housing programs, the county defines household income categories as shown in Table 24. The county distinguishes between different types of housing needs based upon differences in household income levels and the housing cost burden faced by those households as follows: Community Housing: Housing,regardless of tenure,which is affordable housing to those making less than 120 percent of area median income calibrated to household size[emphasis added]. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Page 79 Table 24: :Sarasota County Affordable Housing Policy Income Definitions Qualified Housing Program Income Category Percent of AMI Household Incomes Designation .;xtremely Low Income < 30%AMI $0416,750 Affordable, •. Very Low income 30%to 50%AMI $16,750.01427,950 Afiordable?;` :Low income 50%to 80%AM! $27,950.01-$44,700 Workforce;;'.`.::: `Moderate Income 80%to 100%AMI $44,7.00.01-$55,900 Workforce: . Near Market 100%to 120%AMI $55,900.01=$67,080 Near Market: Market >-120%AMI > or= $67,080.01 Qualified'household incomes based on an AMI of$55,900 for a family of four as defined by HUD for FY20q� Source: Sarasota County;HUD. Affordable Housing: Housing in which monthly rents includingutilities or monthly mortgage payments including property taxes and insuranceido not exceed 30 percent of that amount which represents the percentag6.WAhe area median annual income for the households making less than.1.0.0" percent of area median income calibrated to household size. Workforce Housing: Housing,regardless of tenure,which is affordable housing to households earning-between 60 percent and 100 percent=of Area Median Income,calibrated to household size. These definitions accommodate the county's middle-income workforce-hoiiseholds that face growing challenges to finding affordable housing in Sarasota, and proVde a framework for the county's housing policies. A critical element of the county's proposed revised Comprehensive Plan housing policy is to increase the supply and diversity of housing by maximizing development densities in appropriate locations. and to facilitate this process by providing incentives.`,Toward tha: end.the county drafted a revised land use policy in support of an inclusionan,zoning ordinance with both mandatory and voluntary elements. The proposed mandatory policy applies to all developments with a residential component greater than ten°(1Q)units. In these circumstances, a developer would be required to set-aside fifteen percent of the units in perpetuity for households earning below 100 percent of AMI while receiving a 20 percent density bonus. The county's voluntary inclusionary zoning program.focuses on mixed-use zones and land-use categories that do not otherwise allow residential development under normal conditions. A summary of the county's proposedpolicies is provided in Table 25. Economics Research Associates City of Sarasota Project No. 15939(2) Downtown Density Bonus and Attainable Housing Study Page 80 U (I � a' N a. 'ah o ? - •� C, Gam. _ = 6' n c m m uQ m m `..m vm mmmo.mm _ L" O L L L .- � •- L � L .- r � � r G - o a L -C G o Q a ro m .vl ul `vlvl.°ul R .� 00 oc aoacoo v b Ill ID lf, N Ln N If1 Lfi y a ro ro p G C: �C � O •- U a a a s c J a a a E! 2 ro � R C ro ro f4C F IV^- ro N u c _ E cx! l�J C C: r rc L1 O �^. GJJ D C C C b V1 U: Vl Lf: I!'1 U': t11 U5 {!i tt1 C N N fti N N N N � � N .,•, � N R 2 N r:4 C a O m � tF a - G ._ C c c o c riY1 C N N N n' Y 0 _ c-3 a C 0 c AJf V m O ry u7 O In In C Ol m Cc CP m L U ry IC Fj �.. .. is _ h - J L' I � ._ � r v � •-. — r :• vI p ' ' O O -`�cl T 'G { c a rn -' x .0.. E Q Z. Q G = E ro ti L d I "The:countyis still in:the process.of�defming,'the specifics of its:new:aommunity housing policies , owever;lit is-anticipated that partnerships will be:established with the newly formed;Goinmunity=:Housing'Trust:of:Sarasota.County;:aud,:the existing'Sarasota Office of Housingaud Community Development,to assist=witharnplementation. ;Among the issues stillto'be,adetermined is'how�to;•provide:altematives;to=on;site,affordabld.housing development through mechanisms such.as.an�in-lieu.fees,off-site.development, off-site rehabilitation of•existing units, or off-site redevelopment of blighted and=substandard housing. Community.Housing'Trust of Sarasota=County In September 2004,the Sarasota County Board of County Commissioners committed to support the establishment of the Community Housing Trust of.Sarasota County, also known as a Community Land Trust(CLT),with the goal of ensuring the long-term affordability of a portion of the affordable housing stock within the County. Formally organized in the summer of.2005,the Community Housing Trust of Sarasota County has the ambitious goal of providing 3,000 homes to working families in Sarasota County by 2015, The City of Sarasota also participates in the Community Housing Trust of Sarasota County. The Community Housing.Trust's missionstatement is as.follows: To create opportunities and foster stewardship of permanently affordable housing for low-income and moderate income families and individuals. The purpose of the Community Housing Trust of Sarasota County is: • To provide opportunities for low-income and moderate-income families and individuals to access decent and affordable housing, • To foster the availability of a combination of owner-occupied and rental housing that meets diverse needs. • To preserve the quality and affordability of housing for successive owners and renters through land leases and covenants. CLTs typically are a private non-profit community corporation whose mission is to acquire property through either donation or purchase in order to maintain community control of the lands in the future and remove the lands from the speculative market in order to ensure long-term affordability, Once CLTs acquire land,there are a number of potential uses for the land: green space preservation,commercial development,rental property development, and development of residential units intended for purchase to facilitate home ownership. At a minimum, CLTs provide subsidies by removing(or reducing)the iand costs from the market transaction, except in the case of green space preservation. Homeowners buy the structures built upon the property, but not the land upon which the structures si: and receive 99-year,renewable ground leases,granting them an exclusive possessory interest in the property. The ground lease stipulates a number of conditions regarding use and occupancy of the property,including a formula that restricts the home resale price. Economics Research Associates City of Sarasota Project No. ?5939(2) Downtown Density Bonus and Attainable Housing Study Faae 82 A.homeovmer:may.sell their:home.and:obtain:al mited annount:of.equity that results in the appreciation:.f their.:properl3T:="The.resale+�altie;;is typically:limtted.to:the:uutial down payment on:the:unit;theprincipal.pay-dov✓n-on the=-mortgage;and=a;percentage of the appreciationsduringtheir ownership. :At:;the.time.of:iesale.-the.homemaybe sold for the original:=;purchase..price,plus:the:.:share;:of value::appreciation:-:that the=sellei is allowed in the resale.formula. This arrangement assures:the longi:.term ::on-going affordability and preservation=.of:pubhc and private:subsidies:used:to create the initiahaffordability. In addition to directly supporting the development of affordable housing,the Community Housing Trust.of:Sarasota County is expected.toprovide the;following services related to affordable housing: • Homeowner education; First time buyer-education; • Income verification(i.e., qualification for affordable units); and • Down payment assistance The Community Housing Trust of Sarasota County is expected to receive its first major injection of funding from the sale of parcels owned by Sarasota County in eariy 2006. Subject to Sarasota County Board of County Commissioners approval,the Corrimunity Housing Trust should receive approximately $20 million from the sale. The Sarasota County Board-of County-Commissioners has also established a dedicated Housing Fund. The Housing Fund will receive revenues from dedicated sources of funding such-as taxes,.fees or loan repayments,which are used for.the creation or rehabilitation of community housing dwelling.units. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainabie Housing Study Paae 83 .c �4ppend xuC: P:rop�o-sed Attainable°Ho.using Specialist pos�it�on ER A Tecommends thatthe::City of.Sarasota hire.at least one:full-time experienced attainable.(also known as.affordable)housing specialist to:assist-with implementation of .the downtown density bonus and attainable housing requirement. This staff requirement is likely to.growiftheprogramis widely,us6d. Description .and Typical Duties The:Attainable'Housing:Specialist;assists.in.the:day-.to-.day.adniinistration of the attainable housing.•portion;.oftheHousing.Chapter::and:F.uture-Land..Use:.Chapter of the Sarasota City Plan;plans, conducts;::.and:coordinates activities that:createmid.expand housing opportunities.fordower and.moderate.income.families and.individuals;reviews plans and analyzes development proposals in relationship to compliance with the Housing Element, Future Land-Use Chapter.:and other City plans,policies, and programs;possibly management of:attainable housing trust fund;:and.performs related duties as required. The Attainable Housing Specialist.is:responsible for the%conceptualization, conduct, coordination and day-to-day administration of the complex_attainable housing development activities-prescribed by the Housing Element;Future:Land Use Chapter and other City plans,policies,and programs. Assignments-are received in-the form of project and program activities and the Attainable Housing.Specialist is expected to act with considerable independence in the day-to-day conduct of.program operations. The following are typical duties for the Attainable Housing..Specialist position: • Facilitate communication and cooperation between City departments(Planning Department,Housing and Community Development Department,Building Department,Neighborhood Partnership Office,Redevelopment Department), Planning Board, City Commission,private developers, lenders,and others in order to promote the production of attainable housing. • Produce and analyze housing and mixed use development models to determine financial feasibility of proposed projects. • Read.and interpret detailed projects,plans and specifications to determine compliance with City plans,policies, and programs: Ensure that appropriate affordable housing incentives such as resale restrictions, fee deferments, silent second mortgages, and deed restrictions are included in contracts and other recorded documents related to affordable housing. • Suggests alternative financing methods and approaches to regulatory constraints including zoning regulations and building standards to resolve obstacies to proposed affordable housing projects. • Monitor contract performance to assure conformance with completion and production in accordance with.approved plans and specifications and maintenance of prescribed rent and sale limitations. Economics Research Associates City of Sarasota Protect No. 15939(2) Downtown Density Bonus and Attainaoie Housing Study Paae 84 • . : Develop;:and::maintain::a momtormg.system to track.themumber and location of housing units constructed;utilizing attainable housing incentives 5. • 'Administer and maintain contracts for the provision of a'fiordable'housing mcenttves. ,, ::... • Negotiates attainable housing,contracts with developers within�constraints of applicable codes and ordinances. • Prepare written reports and recommendations and other documents City departments (Planning' I ppartment,.Housing and.Community Development Department,-Building Department,Neighboihood:P.artnership Office, Redevelopment'Department),Planning Board;City Commission and other entities as.regi&ed and Makes oral-presentations to these bodies. • !Answer.questions:and provides.information and assistance to the public,in person, on:the-telephone and in writing regarding affordable housing programs. • Possibly-manage.ment of.:attainable.housing trust fund. • May...coordinate.project:teams and task forces;may distribute and allocate work assignments to other-staff. Knowiedge:.ancf Abilities Considerable.knowledge of the principles,methods,and techniques of land use planning, design review and resource management planning as related to housing development; urban and rural development and conservation;federal, state and local incentives for the production of affordable housing:city and county government and of other governmental agencies which have.a cooperative relationship with housing agencies; and housing financt methods and practices. Working knowledge of the development process from conceptualization through construction and occupancy,; contract formulation and contract monitoring techniques. Ability to read and interpret detailed construction plans; independently plan, organize and carry through research projects effectively;produce and analyze detailed pro forma,- speal, effectively before groups and audiences; establish and maintaineffective working relationships with public employees, other public agencies,citizen advisory committees, official boards,the development community and the general public; facilitate consensus among the participants in the development process; independently perform difficult. complex, and specialized housing studies and projects: select proper research rnetnodology and apply it to housing problems;present the results of research effectively in oral. written and graphic form;prepare clear and concise written reports. Minimum'Qualifications Education: Any combination of education and/or training which would provide an opportunity to acquire the knowledge and abilities listed. At a minimum,possession of a baccalaureate degree (preferably a master's degree)from an accredited coliege or Economics Research Associates City of Sarasota Project No. 15939 (Z) Downtown Density Bonus and Attainabie Housing Study Paee E5 f - - 2.1 university with,:acadeinic.course�work m:public:aassii iistration;business:administration, real estate;:planning;-urban studies,.;geography;architecture,:landscape architecture; economics or.:closelyrelated courses. Experience:..`Expeiience:that would'-provide an opportunity to acquire the:knowledge and abilities listed.`NornWly,:at least three(preferably five or more)years of professional housing development_and/or.housing finance experience in a public or private sector setting would provide such opportunity. Licenses: Not required,but preferred,is a certification in the areas of planning, housing, and/or finance,such as the American Institute of Certified Planners(AICP),National Affordable Housing Professional(NAHP),and Housing Development Finance Professional Certification. Required is possession of a valid driver's license at the appropriate level including necessary special.endorsements,as required by the State of Florida to perform the essential job functions.of the position. Economics Research Associates City of Sarasota Project No. 17939 (2) Downtown Density Bonus and Attainabie Housing Study Paoe 86 r y - - I - ►ppiendix D: Pub`iic ;Mee#i:ng>Connments Tha piibte review rlraftTeportwascompleted on Jarivaiv,27,;2006::and:posted on the cines project website. ERA worked with city staff to present.the.reportfindings:during two public meetings held.at.the City Hall on February 14,:2006.. The meeting presentation and complete:meeting.-notes are zvaildble-from':the cityls.project website. Also.posted on the website are email comments.:received from the..public. The following is a sumrnary of the questions/Icomments.made by the public:and.the response by ERA and city staff during the meetings on February 14,2006: ■ What about changing the limitation on the nuniber of stories in the downtown to a limitation on height,.which could enable additional stories to be built by reducing individual story heights? This issue was outside the scope of this study,so it has not been analyzed. The city's primary-reasons for not addressing-this issue as a part of-this study is because one of the goals of the Downtown PIan,which introduced the use of stories instead of height,was to ensure a consistent urban form in the downtown and also to attempt to avoid the development of substandard units with low ceiling heights. ■ How did you choose among the various policy options available to make the recommendations you made? As noted in the presentation,ERA and city staff attempted to balance competing objectives, including: compatibility with existing development; the community`s desire for attainable housing downtown;financial feasibility of development; program utility.legality,administration; and the potential impact on housing market. Balancing these obiectives reouired consideration of kev affordability' factors, such as density, target income levels, equity appreciation, program administration. etc. However. it is ultimately up to the city residents. businesses, staff. and leaders to decide what policies are best for Sarasota. ■ What about the compatibility issues of one block developed at 200 Dli s per acre in the DTC and DTB next to one developed at only 50 DUs per acre in the DTE? Each proposal will need to be considered on a case-by-case basis to ensure compatibility among land uses and building heights. Such transitions will require particular sensitivity and possibly additional analysis by civy staff and leaders. ■ Instead of requiring tna: 10.0 percent of the total number of housing units (base density,plus bonus density)be attainable units, why not require that a larger proportion of the bonus density units be attainable^ There is not a great difference between the two approaches. although the recommended approach is simpler to calculate and probably easier to implement than the alternative. In addition,the alternative approach would result in varying levels of attainable dwelling units per market rate unit as a function of the density achieved. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus ana Attainable Housing Study Face 87 Hou:can;w.e=ate::;broad;;p.olicy:istatements:m,<ffi"Sararsota:City:Planand <;:maintain;flexibility-.in,terms<of_the.specific-implementing zoning ordinance? ;The recommended:policies are`fairly specific and comprehensive,which is similar :to that.proposed,approach,adgpted by:Sarasota Count should make.it less subject to.challenge once implemented..,:. .. ■ Would.approval of:the:density.:bonusFbesubject:to Community Redevelopment Agency.Advisory,B.oard,(CRAAB)revieN�,:? The CRAAB has reviewed this policy document;but'will:not review individual projects unless..such.projects will-receive.Tax.IncrementFinancing(TIF)funding. In.addition:the area to:which:the.downtown density;:bonus.program will apply is larger than the.CRAAB,boundaries.-For those.projects:thatthe CRAAB does review.the CRAAB makes recommendations to the Planning Board,which in tum makes recommendations to-the City Commission. The density bonus is subject to review by Planning and Redevelopment Department staff as well as public.:hearingsleldbythe`P..lanning Board and City Commission, with a recommendation made.by the former.and:approval made by the latter. Criteria for approval will'be=incorporated into the City's land:development regulations, including consideration of the criteria specified is Objective;—Development Review and Approval.Process of the Future Land Use Chapter. ■ Cotild the land use map be changed separately from adoption of the density bonus program? Yes,theoretically they could be done separately, although staff is bring ng them forward to improve consistency in how areas in the downtown are treated. ■ General comments included the following: o Traffic and person trips need to be analyzed in relation to land use changes. c Meaningful public transportation needs to be available to attainable households downtown. c Shopping and restaurants that are affordable to attainabie households should also be nearby. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable housing Study Page 88 x' Appaencii�t:'A -,E,1i n=L eu Fee:QUOUons�RLviean► F:ollowing:the::pulilic meetings.;on:'Feliruary.:1-4:2006'"ERA was�a§ked to provide a brief supplementary,.analysis of.inIieufees:orthe,::.provision.of attainable units elsewhere. Forthe:following reasons;ER ;.recommends'thatmo iii-lieu fee;orrelated option be allowed to developers seeking the.downtownrdensity bonus: The primarygoal of:thedowntownidensitybonus program and corresponding at[ainable.housing univrequirement wa&lo:ensure that attainable units are in fact .:developed downtown. loot allowing the'in-lieul:fee optioiralso reduces the-,administrative burden on the cit y:andkeeps it"from becoming-Airee4y•involved.in the development wad/or financing of attainable housing units. On the other hand,:.allowing.an in.lieu.fee would.have..the following benefits: ■ The fees.could be used for the development of.attainable-housing units in non- downtown locations:that:are likely.to be less:expensive per unit to develop and, therefore;.allow.:development of more::attainable housing units than in the downtown. ■ The fees could be used to support other attainable housing efforts,such as those by the Sarasota Community Housing Trust.or to provide direct financial support to attainable.households, such as through down payment assistance for buyers or even rental payment assistance. If an in-lieu fee option were allowed,the following policies are suggested to ensure that the policy remains fair and effective: ■ The in-lieu fee should be set at a level that discourages its use by capturing the additional profit a developer would eam via the in-lieu fee or results in the development of significant additional attainable dwelling units elsewhere. For example.the in-lieu fee could be set as the difference between the average marker rate dwelling unit price and the attainable dwelling unit price(e.g.,if the average market rate unit sold for$500,000 and the attainable unit price was 5169,000 at 100.0 percent of Median Family Income,the in-lieu fee would be 5331,000). Another approach would be to require the provision of more attainable dwelling units elsewhere (e.g.,if 10 attainable units were require in the downtown but were provided outside the downtown,then if 50 percent additional units were required. 15 attainable units would have to be provided elsewhere). ■ Policies,administrative procedures, and staff resources should be specified in advance for the use and monitoring of in-lieu fees to develop attainable dwelling units. Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Paqe 89 'd;,::i'; Append x'rF: '°F.easrb',iiit''ModeI .,For=SaleHits (Condos) -"Downtown''Edge ::(DTE) -Base Case Economics Research Associates City of Sarasota Project No. 15939 (2) Downtown Density Bonus and Attainabie Housing Study Page 96 2/2/2006 5:49PNI,:ERA;:=Sarasota'DT,+Nlodel(200'0-02-02).ius Mode•. Feasibility:'Model-..For-Sale Units.(Condos)=:Downtown Edge`.(M)-Base Case Downtow,n:sarasota:'.Densitv,.Bon6s.and:Attainable:Housing:'Study._..;. .. . Tenure 1 Tenure(Own/Rent: DUs For Saie/Condos=0,AoarLJRent<>0 0 'For Sale Key Policy Variables Zone: O=DTE, 1=DTC, <>DTB 0 DTE(Base Density =25 DU/acre; Density(°io of Current Density) 100.00/10 4 Beiow Market Rate Units(BMR)(%of Total DU) 0:0% 5 incomevs.MF:. G=60%,1=80%,2=100%, <>=120°! 0 NA Sensitivity Sensitivities [Base=100%) A Land Costs Per Dirt Sq.Ft. 100% B Construction Costs Per So.Ft. 100% C Cast Per Parking Space 100 D On/Off-Site Infrastructure 100% E Permits and Fees Per Unit 1000 F Other Soft Costs 100 G Property Taxes 100% H Pre-CgnStrtiction Loan Period 100% I Construction Loan Period 100% J interest Rate I 100% K Attainable DU Size(Sq.Ft.) 1000k - Parking Spaces Per Attainabie DU 100% M Market Rate Unit Price 100% Profit as a Percent of Total Development Cos: General Development Characteristics Zoning Category DTE Base Density(DU/Acre) 25, Max.No.of Stories 5 Site Size(acres) 1.00 Building Characteristics Building Footorin: Maximum Site Coverage(Percent o`. Site; i 100.0°%° Max.Aliowabie Buiiciiri•g Footprint(sc.ft.) 43.56C Max.Aliowabie Built Space(so.ft.)(Footorin;Y.Stories; 217.800 Density Bonus Characteristics(if used) Density Bonus Bonus Density(Above Current Density;' 0.0% Potential Maximum Density(DU/acre) 25.0 Reouired Beiow Market Rate(BMR)Urn*s On Total Beiow Market Rate Units(of total DUs) 0.00". Potential BMP.Density(DU/'acre) Source: Economics Research Associates,2006. Pape i. of 222006 5:49 PM ERA-Sarasota DT.Model(Z 006-02-02).xls Model Feasibility IVlodel=YFor=.Safe'Units (Cnniios) Downtown Edge'(DTE):'Base Case Downtow.ri:Sarasota Density'�Bonus•and-Attainable�Housing°Study Residential Characteristic '.:Dwelling Units:(DUs) Market Rate.DUs 25 Beiow Market Rate DUs .'Total DUs —iotaI Density(DU/acre) 25.0 Percent of.Base Density '100.0% "Average Unit Size(sq.ft.) Market Rate 1,20D ..Below Market Rate 1,200 Residential(sq:ft.) Net DU Sq.Ft.(DUs x Ave.Uni:Size) 30,000 Common Area Percent of Total Residential Sq.Ft.) Common Area(s0.ft.) 7,000 Total Residential(Gross)(sc.ft.) 37,000 Parldng Characteristic Parking Ratio(Spaces Per DU) Market Rate DUs 1.50 Beiow Market Rate DUs 1.50 Parking Spaces Market Rate DUs 38 Below Market Rate DUs Total Parking Spaces 38 Average Spaces Per DU 1.52 Parking Area Gross Size Per Parkine Soace(incl.ramps,access/egress, 400 Parking Area(sq.1t.) 15,000 Type of Parking Parking Exceeds Site Size-, No Non-Parking Built Space Exceeds Remaining Max.Built Space? No Type of Parking Surface Total Built Area Total Residential(so.ft.) 37,000 Parkino(sc.'t.' 15.000 Total Built Area or Total Saleabie Area(sc.'-) 52,000 Fioor-to-Area Ratio(FAR) 1.2 Project Stories No.of Stories 2.0 Exceeds Stories Limit? No Source: Economics Research Associates,2006'•. PaeE 2 0f 5 2/22006"5:49 PM ERA•Sarasota DT Model(2006-02-02).xls Model '�F..easib lity1lVl6del:=For-Sale Units:(Condos) Downtown.Edge;;(D'TE).im".Base.Case Downtown:Sarasota Density.:Bonuszand:Attainabie:Houting:Study Development Cost Assumptions Land Cost Per Dirt So..Ft. .5751 Const.Costs Per Sq.F1.(includes Substructure,Shell,interiors,Services, .:I 5150 EW,Contractor Profit,but excludes Parkino and On/Off Site I Infrastructure) Cosi Per P.arkino_Space Surface 55.0001 .Structured 5251000 Fioure Used .$5;000 On/Off-Site Infrastructure Costs Per Uni. _517,500 Permits and Fees Per Unit I $10:000 Otner Soft Costs(e.g.,ASE,Leaa,insurance,etc.) 20.0% Property Taxes 1.80% Financing Assumptions Land Financino Loan To Value(LTV)Ratio 75.00% Average Outstanding .60.000) Interest Rate i 7.00%! Loan Period(months)(12 mo.approval const.period) 36 Loan Free(Points) 1:00% Construction Financing(Hard,Soft) Loan To Value(LTV)Ratio 75.00% Average Outstanding 60.00% interest Rate 7.00% Loan Period(months) 24 Loan Fee(Points) 1.00% Condo Sales Prices/Cost of Sales(r used) Average Saies Prices Market Rate Units Sales Price Per DU I $500.000'i Sales Price Per DU Sq.Ft.(Net:. $417 Below Market Rate Units MF!Leve: 60.00% Price Per DU $91,000 Price Per DU So.F1. 57E Sates Revenues Market Rate Units S!2,500,000 Below Market.Rate Units $0 Total Sales Revenues $12,500,000 Cost of SaiesiMarketing Percent of Sales Revenues 7.5% Cos of Sales/Marketmo (5938.000:: Source: Economics Research Associates,2006. Pagc 3 of 5 2/2/200E 5:49 PM ERA-Sarasota DT Model(2006-02-02).xls Model Feasibility-Model-for-Sale`Units (Condos) Downtown Ed.ge.(DTE)=.:Base Case Downt6w:n°5arasota"Density•Bonus:and Attainable<IHouMng Study Development Costs Land Cos :'53267;000 Land financing Costs "rinancable Costs 13.,267,000 Loan Amoun. 52,450,250 Averaoe Balance Outstandlno '$1,470,000 Interest on Loan 5309,000 Points on Loan, 25 5:000 Total Land Financing Cost iI5334,000 Construction Cost(excl. on/off.site and parking) $5,550,000 Parking Costs $190,000 On and Off-Site Infrastructure Cos 3438,000 Soft Coss Building Permits and Fees 5250,000 Other Sof Costs(e.g.,A/E, Leaal,insurance,etc.) $1,236,000 Property Taxes175 0.000 Tota!Soft Costs $1,656,000 Construction'rinancino Coss Financable Costs(Hard,Soft) $7,834,000 Loan Amount $5,876,000 Average Balance Outstanding 53,526,000 interest on Loan 5494,000 Points on Loan 559,000 Total Construction Financino_Cos. 5553,000 Sales Coss $938.000 Total Deveiopment Cos- 512,926,000 Development Profit(Loss) .Gross Saies Value 512,500,00C Total Development Cost (51'.926,000; Profit(Loss) ($426.000; Profit as a Percent of Total Development Cos •3.3`; Minimum Profit Hurdle Rate Minimum Profit Hurdle Rate(%Total Development Cos) 20.0% Tarae;Achieved? IVB Source: Economics Researcn Associates,2006. Pape 4 o`5 22200E 5:49 PM ERA-Sarasota DT Model(2006-02-02).xis Model :.::.... ..... Fea3ibility;Nlodel=sFor.m:Sale Units(Condos} ;Downtowri:Edgei;(.DTE), Base Case .Downtown'Sarasota-:Density Bon us:and-Attainable:Housin,g:Study . Development Profit/Costs Analysis Profit(Loss) Required Proflt/DU to Meet Hurdle Rate iS103,40C Profit Per DU Profit Per Built(Saleable)Sq.Ft. 58) Profit Per Net DU So.Ft. (4,14) Cost Per DU Land $131,000 Land Financing $13,000 Construction $222;000 Parking $8,000 On/Off. Site Infrastructure $18,000 Soft $66.000 Construction Financing $22.000 Sales $38.000 Total $517,000 Cost Per Built(Saleable)Sq.Ft. Land $63 LandFinancing $6 Consiructior. $107 Parking $4 On/Off Site inirastructure $8 Soft $32 Construction-Financing $11 Sales $18 Tota $249 Cost Per Net DU Sa.Ft. Land $109 Land Financing $11 Construction $185 Parklno $6 On/Off Site Inirastructure $15 Soft $ , Construction Financing $13 Saiz S31 Tota; $43 Source: Economics Research Associates,2006. Paas 5 0f 5 Appendix G:: 4Feasi'b:iiity.iMo.del - F.or-=Sale �.Units-}('C?ondos) :Downtown Zore ADTO - -Base Case Economics Research Associates City of Sarasota Proiect No. 15939 (2) Downtown Density Bonus and Attainable Housing Study Paae 96 2/22006 5:55 PM ERA':;�SarasotaaDTlm6del..(2DO6-02-02).xls Model 5• - , feasibility'.'Model -for-Sale Units (Condos) -.?Downtown.Core.(DTQ -.Base Case Downtown::Sarasota:Density:Bonus�and�Attainai�fe.. ousing°Stu.- Tenure 1 Tenure(Own/Rent): DUs For Sale/Condos=0,Agart./ken: <>0 0 For Sale Key Policy Variables 2 , Zone: C—DTE, 1=DTC, <>DTB 1 DTC(Base Density = 50 DU/acre) 3 Density M of Current Density) 100.0% 4 Below Market Rate Units(BMR)(%of Total DU) 0.0% 5 income vs.MF: 0=60%, 1=80%,2=100%, <>=120% 0 NA SensithAty Sensitivities Base=100%) A Land Costs Per Dirt Sq.Ft. 1000/0 B Construction Costs Per So.Ft. 100% C Cost Per Parking Space 100% D On/Off-Site Infrastructure 100% E Permits and-Fees Per Unit 100% F Other Soft Costs 100% C ProDerty Taxes 100% H Fre-Construction Loan Period 100% I Construction Loan Period 100% i interest Rate 100% K Attainable DU Size(Sa.Ft.) 100% L Parking Spaces Per Attainabie DU 100% M Market Rate Unit Price 100% Profit as a Percent of Total Development Cost 15.6% General Development Characteristics Zonino Cateocry DTC Base Density(DU/Acre) 50, Max.No.of Stories 10 Site Size(acres) 735 Buildino Cnaracteristics Buiiding FFootorin; Maximum.Site Coverage(Percent of Site) 100.5% Max.Aliowabie Building Footprint(sq.ft.) 43,560 Max.Allowabie Buil;Space(sq. f.)(Footorin-,x Stories) 435,600 Density Bonus Characteristics Of used) Density Bonus Bonus Density(Above Current Density) O.D% Potential Maximum Density(DU/acre) 50.0 Required Beiow Market Rate(BMR)Units On Total Beiow Market Rate Units(of total DUs) 0.0% Potential BMP,Density(DU/acre) - Source: Economics Research Associates,2006. Paae : of 5 2/2/2006 5:55 PM ERA-Sarasota D`Model(206-02-02).xls Model '.: Feasilii{ity)M6de1 =;For-Sale'Units"(Condos) -`Downtown'Core`.(DTC)-='Base,Case Downtown'Sarasota.Density.'Bonus and.Attainable Housing Study Residential Characteristic Dwelling Units(DUs) Market Rate DUs •.50 Below Market Rate DUs Total DUs 50 .Total Density(DU/acre) 50.0 Percent of Base Density 100.0% Averaae:Unit Size(so.ft.) Market Rate ' 200 200 Below Market Rate 1,200 Resi d e nti a l.(sq'.ft.) Net DU.Sq.Ft.(DUs x Avc. Unit Size) 60,000 Common Area Percent of Total Residentia!Sq.Ft.) 1 B.0% Common Area(so.ft.) 13.000 Total Residential(Gross)(sq.4.) 73,000 Parkino Characteristic Parking�.Ratio(Spaces Per DU) Market Rate DUs 1.50 Bdow:Market Rate DUs 1.50 1 Parking Spaces Market Rate DUs 75 Below Market Rate DUs Total Parking Spaces. 75 Average Spaces Per DU 1.50 Parking Area Gross Size Per Parkinc Space(incl.ramos,accessiearess, 400 Parkino Area(sq.ft.) 30,000 Type of Parking Parkino Exceeds Site Size? No Non-Parkino Built Soace Exceeds Remainino Max. Built Soace? No Type of Parking Surface Total Built Area ictal Residential iso.`.) 73.000 Parkino(soft) 30.000 Total Built Area or Total Saleable Area (sq.ft.) 103,000 Floor-to-Area Ratio(FAR) 2.4 Project Stories No.of Stories 3.0 Exceeds Stories Limit? No Source: Economics Research Associates,2006. Pace 2 of 5 222006 5:55 PM ERA.-Sarasota DT.Model(2DO6-02-02).xis Model sam Fe6MIAlity' Yodel- °;For-Sale Units(Condos)•-=:Downtown`Core;(DTC) =:Base"`Case Downtown Sarasota Density Bonus.,andAAttainable Housin.g:Study . Development Cost Assumptions Land Cost Per Dir Sq. Ft. 51.00. Const.Costs Per Sq.Ft.(includes Suostructure, Shell, Interiors,Services, 51.75. EW,Contractor Profit,out excludes Parking and OWCiff Site Infrastructure) Cost Per Parking Space Surface 55,000 Structured .525;000 Fioure Used 55;000 On/Off-Site Infrastructure Costs Per Unit 517:5001 Permits and Fees Per Linn 510,000 Other Soft Costs(e.g.,A/E,Legal,Insurance,etc.) 20:0%. Property Taxes 1.80%i Financing Assumptions Land Financing Loan To Value(LTV)Ratio 75.00% Average Outstanding 60.00% interest Rate 7.00% Loan Period(months)(12 mo.approval _ const. oeriod) 36 Loan Fee(Points; 1.05% Construction Financing(Hard,Soft) Loan To Value(LTV)Ratio 75.00% Average Outstandinc 60.00% interest Rate 7.00% Loan Period(months) 24 Loan Fee(Points) 1.00% Condo Sales Prices/Cost of Sales(if used) Average Sales Prices Market Rate Units Sales Price Per DU j $600.000 Sales Price Per DU Sc..-Ft.(Net; 5500 Below Market Rate Units MF! Level 60.00% Price Per DU 491,000 Price Pe-DU Sq.Ft. $76 Sales Revenues Market Rate Units 530,000,000 Below Market Rate Units $0 Total Saies Revenues 530,000,000 Cost of Sales/Marketing Percent o`Sales Revenues 7.5% Cost of Sales/Marketing (52,250,000; Source: Economics Research Associates,2006. Page 3 0` si 222006 5:55 PM ERA Sarasota DT Model.(2006-02-02).xls Model .. ... '"flu c Tedgibili,ty►l Adel For=SaW.0nits'(Condos)-. Downtown.Core:(DTC)�"Base'Case;:`.: :Downtown Sarasota Density Bonusz'and;Attainabie Housing':Study Development Costs Land Cost $4,356;000 Land Financina`Costs "rinancabie'Costs $4;356;000 LoanHmount $3;267;000 Average-Balance Outstanding $1;960;000 Interest on Loan $412,000 Points on Loan .$33:000 TotallLand Financing Cost $445,000 Construction'Cost(excl.on/oft site and parking) $121775;000 Parking.Costs: $375;000 On and Off-Site Infrastructure Cost $875;000 Soft Costs% Building Permits and Fees $5001000 Other Soft Cost(e.g.,A/E,Legal, Insurance,etc.) $2;805;000 Property-Taxes $331:000 Total so;ft:Cost $3,636,000 Construction Financing Costs Financable Cost(Hard,Soft) $17.,661°000 Loan:Amount $13,246,000 Average Balance Outstanding $7;948;000 Interest on Loan $1;113;'000 Points on Loan i132',000 Total Construction"Financing Cost $1,2451;000 Sales Cost $2,250,000 Total Development Cost $25,957,000 Development Profit(Loss) Gross Saies Value 530,000,000 Total Development Cost ($25.957.000'1 Profit(Loss) 54,043,000 Profit as a Percent of Total Development Cost 15.6% Minimum Profit Hurdle Rate Minimum Profit Hurdle Rate(1%Total Development Cost) 20:0% Taraet Achieved? No Source: Economia Research Associates,2006. Paoe 4 of 5 22/2006 5:55 PM ERA .Sarasota DT:Model.(2DO6-02-02).xls Model . ... ..... .. ......:.: FeaS�f iliiysMoclel ='For=Safe:Units;(ConcJos)�:.Downtown;Core..;(DT.C)=;�ase=Case....:. :Downtown'-Sarasota:Density'BofiUsi and Attainable 4Housin.g.Stuci.y Development Profit/.Costs Analysis Profit(Loss) Required Profit/DU to Meet Hurdie Rate $103,800 Profit�Per.DU $80,860 FrofitrPer.'Built(Saleable)Sa..Ft. ".539 Profit:Per:Net DU Sq.Ft. :.�$67 Cost Pen.DU Land .$87,000 Land:Financing '$9;000 Construction. 5256;000 Parking :$8,000 On/Off Site Infrastructure $18;000 Soft573,000 Construction Financing $25,000 Sales $45:000 Total -$519;000 Cost Per,Built(Saleable)Sq.Ft. Land S42 Land Fi.nancinq_ 34 Construction. S11 24 Parking :$4 On/Off Site infrastructure $8.. soft 535 Construction"Financing S i 2 ka 532 Total $252 Cost Per,Net DU Sq.Ft. Land S73 Land Financino S7 Construction J 521= Parking .$6 On/Of`Site infrastructure $1 Soft $o Construction Financing $21 Sales S38 Tota $433 Source: economics Research Associates,2006. Page 5 a'5 �4p.pen,dix H F.Fea,sibiiit r:Model-- or=Sale Units'z(Cnndos) Downtown i3ayfrontL(DTB) Base-Case Economics Research Associates City of Sarasota Project No. 19939 (2) Downtown Density Bonus and Atiainabie Housing Study Page 102 22/2006 5:53 PM E.:. Sarasota'xD1ltvlodel(2006-02-02).xls Model FeasibiIity:4model -.Tor-Saie,'U6its.(Condos) -;:Downtown^Bayfront°:(.DTB.).=Base Case Downtown`Sarasota`D.ensity.Sonusagd AttainatiieMousinu5tu.dy,>%, Tenure 1 Tenure(Own/Rent): DUs For Sale/Condos=0,Apar../Rent <>0 0 For Sale Key Policy Variables 2 Zone: 0=DTE, 1=DTC, <>DTB 2 DTB(Base Density = 50 DU/acre) 3 Density(%of Current Density) 100.0% 4 Below Market Rate Units(BMR)(%of Total DU) 0.0% income vs.MFT: 0=60%, 1=80%,2=100%, <>=120% .0 NA Sensitivity Sensitivities Base=100°/0 A Land Costs Per Dirt Sq.Ft. 100% B Construction Costs Per Sq.Ft. 100% C Cost Per Parking Space 100% D On/Off-Site Infrastructure 100% E Permits and Fees Per Unit 1000/0 F Other Soft Costs 100% G Property Taxes 100% H Pre-Construction Loan Period 100% I Construction Loan Period 100% J interest Rate 100% K Attainable DU Size(Sq.Ft.) 100% L Parkina Spaces Per Attainable DU 100% M Market Rate Unit Price 100% Profit as a Percent of Total Development Cost 12.4% General Development Characteristics Zonino Categon, DTBI Base Density(DU/Acre) 50j Mar..No.of Stories I 1 g' Site Size(acres) 1.00 Buildino Cnaracteristics Building -Footprint Maximum Site Coverage(Percent of Site) 100.0°l0 Max.Aliowable Building Footprint(sq.ft.) 43,560 Max.Allowable Built Space(sq.ft.)(Footprint x Stories) 784,080 Density Bonus Characteristics(if used) Density Bonus Bonus Density(Above Current Density) 0.0% Potential Maximum Density(DU/acre) 50.0 Required Beiow Market Rate(BMR)Units On Total Beiow Market Rate Units(of total DUs) 0.0°� Potential BMP,Density(DU/acre) - Source: Economics Research Associates, 2006. Page 1 of 5 2/22006 5:53 PM ERA-Sarasota DT Model(2006-02-02).xls Model Feasibm y:I. 6-del - For=Sale Units (Condos} tUowntown';Bayfront'(DTB) =-Base;:Case . Downtown Sarasota Density'Bonusand2^Attainable'Housing`Study. :.:. Residential Characteristic Dwellina Units-:(DUs) Market:Rate DUs 50 Below Market Rate DUs Total DUs :50 Total Densitv(DU/acre) 50.0 F,Percent of.Base Densitv 100.0% Average'.Unit.Size(sq.ft.) Market::Rate I -.1;200.' Below Market Rate 1;200 . Residential.(sa.ft.) Net'DU:So.Ft.(DUs x Avg. Unit Size) 60,000 Common Area Percent of Total Residential Sq.Ft.) 18.0% Common Area(so.ft.) 13:000 Total Residential(Gross)(sq.ft.) 73,000 Parking Characteristic Parking Ratio(Spaces Per DU) Market Rate DUs 1:50 Below Market Rate DUs 1.50 Parking Spaces Market.Rate DUs 75 Beiow Market Rate DUs Total Parking Spaces 75 Average Spaces Per DU 1.50 Parkino Area Gross Size Per Parkino Space(incl.ramps,access/earess, I 400 Parkino Area(sq.ft.) 30,000 Type of Parking Parking Exceeds Site Size? No Non-Parkino Built Soace Exceeds Remainino_ Max. Built Soace? No Type of Parking Surface Total Built Area Total Residential(sp.ft.) 73,000 Parking(so.f.) 30.000 Total Built Area or Total Saleable Area(sq.ft.) 103,000 Fioor-to-Area Ratio(FAR) 2.4 Project Stories No.of Stories 3.0 Exceeds Stories Limit? No Source: Economia Research Associates,2006. Page 2 of 5 2/22006 5:53 PM ERA-Sarasota DT Model(2006-02 02).xls Model _ I , `FsasiliilityiMotlel ,FoT-Sale.:Units (Condos):Downtown Bayfm ts.(DTB) -;°Base''Case Downtown.Sarasota'D.ensity.Bonus'.and,iAttainabie:Housing:Study Development Cost Assumptions Land Cost Per.Dirt SG.Ft. Const.Costs Per So.Ft.(Includes Substructure,Shell, interiors,Services, ;'S200� E&=,Contractor Profit, but excludes Parkinc and On/Off Site Infrastructure; Cost Per;Parkino Soace Surface. 55,000 Structured :5251.000 Fioure'.Used 1.$5;000 On/Off-Site.lnfrastructure Costs Per Unit 5.17,5001 Permits and Fees Per Unit 510,000 Other Soft Costs(e.g.,A/E,Leoal, Insurance, etc.) '20:0% Property Taxes 1.80°io Financing Assumptions Land Financing Loan To Value(LTV)Ratio 75.00% Average Outstanding .60.00% Interest Rate 7.009,16 Loan Period(months)(12 mo.approval — const.period) 36 Loan Free(Points) 1.00% Construction Financing(Hard,Soft) Loan To Value(LTV)Ratio 75.00% Averaae Outstanding_ 60.00% Interest Rate 7.000/c Loan Period(months) 24 Loan Fee(Points) 1.00% Condo Sales Prices/Cost of Sales(if used) Averaqe Saies Prices MarKet Rate Units Sales Price Per DU $700,000 Sales Price Per DU So.FT.(Net) $583 Beiow Market Rate Units MFI Leve'. 60.00% Price Per DU $91,000 Price Per DU So.Ft. $766 Sales Revenues Market Rate Units 535,000,000 Below Market Rate Units $0 Tota!Sales Revenues 535,000,000 Cost of Sales/Marketin6 Percent o`Saies Revenues 7.5% Cost of Sales/Marketino (S2,625,0= Source: Economics Research Associates.2006. Paoe 3 of 5 2/22000"5:53 PM ERA-Sarasota DT Model(2006-02-02).xls Model ,.y Teastiiility'Model -''For-SMebnits (Condos)=':Downtown'.Bayfront"(DTB);Base%Case Downtown Sarasota'Densit.y:Bonus and'Attainabie,Housing,Study Development Costs Land Cost $6,534;000 Land Financing Cosa Fina ncabie.Costs $6,534;000 Loan Amount $4,9D0,500 Average Balance Outstanding $2,940;000 Interest on Loan $617,000 Points on Loan $49.000 Total-Land Financing Cost $666,000 Construction Cost(excl.on/off site and parking) $14,600;000 Parking Costs, $375,000 On and Off-Site Infrastructure Cost $875,000 Soft Costs Building Permits and Fees $500,000 Other Soft Costs(e.g.,NE,Legal, Insurance,etc.) $3,170,000 Property Taxes $403.000 Total Soft Costs $4,073,000 Construction Financino Costs Financable Costs(Hard,Soft) $19,923,000 Loan Amount $14,942,000 Average Baiance Outstanding $8,965,000 Interest on Loan $1,255:000 Points on Loan $149,000 Total Construction Financino Cost $1,404,000 Saies Costs $2.625.000 Total Development Cost $31,152,000 Deveiopment Profit(Loss) Gross Sales Value $35,000,000 Total Development Cost ($31.152,000) Profit(Loss) $3,848.000 Profit as a Percent of Total DevelOgment Cost 12.4% Minimum Profit Hurdie Rate Minimum Profit Hurdle Rate(°ro Total Deveiooment Cost) 20.09b Target Achieved, No Source: Economics Research Associates,2006. Paoe 4 of 5 222006.5:53 PM ERA-Sarasota DT Model(2D06-02-02).xis Model F.easttiility'Mode1:=:For.='SaleUnit -412 ondns) Downtown°..Beyf:ront:.(DTB) .-Base:Gase Downtown:''Sarasota"DensitySonus and Attainable.Housing-'Study' Development Profit/Costs Analysis Profit(Loss) Required Profit/DU to Meet Hurdle Rate $1241600 Prcflt;Rer.DU .$7.6,960 Profit'Per.Built(Saleable) Sq.Ft. .£37 Profit.PerNet DU Sq.Ft. ,$64 Cost PerDU... Land $131:,000 Land:Fi na ncing $1:3,000 Construction $292,000 Parking $8,000 On/Off Site Infrastructure $18,000 Soft ' $81,000 Construction Financino $28;000 Sales $53;000 Total $623,000 Cost Per Built(Saleabie)Sq.Ft. Land $63 Land Financino $6 Construction $142 Parking $4 On/Off Site Infrastructure $8 Soft $40 Construction"Financino $14 Sales 25 Total £302 Cost Per Net DU So.Ft. Land $109 Land Financino $11 Construction $243 Pa rkino $6 On/Off Site Infrastructure V5 Soft $68 Construction Financino $23 Sales $a4 Total $519 Source: Economics Research Associates, 2006. Pace 5 of 5 NCBG: TIFs:-Housing Page 1 of 6 contact us join NCBG Ni MMORK000 CArrML'BUDGlVr a�`R W _ about us a'esearch press releases links &resources Public:Works Schools TIFs Transit The Lowdown Home > TIFs > TIFs and Housing Whats a TIF How.TIFs Work TIFs and.Housing TIF Process TIF Eligibility How Have TIF Dollars Been Used For Housing? TIF Glossary Who has the Power Can TIF.Dollars.Benefit Existino Homeowners and Renters? Who Pays What Protections Exist for Homeowners and Renters? TIF Alternatives pact.Study. TIF Bill,of•Rights Housing Im TIF Reform Platform Chicago Homeowner Assistance (CHAP) Program Reforms&Amendments What Does The City Mean By "Affordable"? How Chicago Spends TIF$ TIF Profiles How do TIFs affect homeowners and renters? Take?Action Organizing.in your TIF TIFs work by raising.the overall property value of a TIF district, which Accountable Development generates more property tax revenues that can then be used to pay for TIF Oversight redevelopment projects. In primarily residential TIF district TIF Townhall P P P Y , property TIF Taskforce values can rise in.one of three ways. First, new housing can be built on Interested Parties Registry vacant land which currently pays little or no taxes. Second, Local Officials improvements to existing properties can boost tax revenue in the area. TIF and... Finally, the values of existing houses and apartment buildings can rise TIFWORKS as..part of a.general growth in area.propert_y values, forcing residents TIFWORKS - Funds Awarded and businesses to pay higher property taxes or rents. While renters Job Training don't directly pay property taxes they often see the impact of higher Transit property taxes passed on to them in the form of higher rents or Public Housing condominium conversions. Taxes Public Works Housing There's good news and bad news when it comes to the impact of TIFs Eminent Domain on residents. The bad news.is that TIFs, particularly in areas that have Big Box Retailers already begun to experience rising property values, can accelerate the Small Business Developer.Subsidies process of gentrification. Rapid.development - particularly high-end residential construction - may drive property taxes up throughout the neighborhood, even in areas just outside the boundaries of the TIF. Even more directly, new development can lead to the demolition of existing affordable housing. The good news is that recent changes to State law make it easier to pay for the construction of affordable housing with TIF dollars, and provide some protection to residents who are threatened with displacement. How Have TIF Doliars Been Used For Housing? The City of Chicago has long used TIFs to pay for housing development - both affordable and market-rate. There is no written policy at the State level that requires a set-aside for affordable housing, though the City has said in the past that it wants developers to reserve 20 percent of the units in each TIF-subsidized residential project to be affordable. http:/iwwm;.ncba.org/tifs/housinL.htm 6/2/2006 NCBG: TIFs: Housing Page 2 of 6 As you can see in the attached list:of TIF-funded housing projects,;.::.'; however,:the City does not always abide by that standard. Some downtown projects in which office buildings are converted into high-end condominiums are.among the worst violators of this unwritten rule. Still, there has been some affordable housing constructed with TIF dollars. Overall, NCBG can track 25 TIF projects have included some residential development.NCBG can document 4,471 units of.housing constructed as part of those projects, 1,832 of which are fisted as affordable. A total of$179.7 million of TIF money has been promised-to housing development projects (including the $9.1 million in direct rehab grants provided through the Neighborhood Investment Fund program), which has resulted in $549.4 million of additional investment. Please note: Seven of these projects (in the Central Loop, Near South, Howard=Pauiina, Chinatown Basin, Lawrence/Broadway, and Lincoln/Belmont/Ashland TIF districts ) are mixed-use projects that include some commercial development, and their $46,850,240 in TIF subsidies is counted in full'here. The State TIF reform law, signed into law by Gov. George Ryan in August 1999, will make it easier for developers to use the T7IF program to build affordable housing. In general, TIF dollars cannot be used to pay for the "bricks and mortar" costs of construction. Subsidies to private developers instead come in the form of funds for activities such as land acquisition, environmental cleanup, surrounding infrastructure improvements, building demolition, financing and interest payments, or job training programs.The State TIF reform law allows for up to half of the "bricks and mortar" cost of affordable housing projects to be paid for out of TIF revenues. Developers may also use TIF money to write off up to 75 percent of the interest costs associated with the project. (Think of it like someone paying for the interest on your home mortgage or other loan. In the end, you owe less because you don't have to pay the interest.)These incentives could make it much more attractive for developers to build more affordable housing in some TIF districts. Can TIF Dollars Benefit Existing Homeowners and Renters? As with commercial development, the TIF program tends to favor big housing developments - often on large pieces of vacant land - over assistance to existing homeowners. Historically, the City has looked for the biggest "bang for its buck" when it comes to development projects, and it is much easier to give a subsidy to a single developer who will build dozens of units at once than It is to distribute dozens of subsidies to individual homeowners. The,drawback to such an approach is that new residents benefit from the TIF program, while existing residents find it nearly impossible to tap into the money. http:/%v,7v,m..ncbg.org%tifs/tiousina.htm 6/2"2006 NCBG: TIFs: Housing Page 3 of 6 The City isgradually reco.gniiin.g this.problem, and has established a pilot.prograrn called the Aei.ghborhood Investment Program (or 'TIVNIP'Tthat provides a way to give existing homeowners direct grants for:extenor repairs and safety upgrades. A single-family is eligible for grants of up to $10,000. Multi-unit buildings can receive grants of between $12,500 and $50,000, depending on the number of units. The programs are administered through two private agencies under contract with the City - Neighborhood Housing Services (for the single-family program) and the Community Investment Corporation (for the multi-family program) - which are in charge of selecting who gets the grant money, Households who benefitfrom•the program must be low- to moderate-income. So far, five communities have taken part in the TIF NIP program - Woodlawn, Bronzeville, Lawrence/Kedzie, South Chicago, and most recently the large Midwest TIF district in the Garfield Park/Lawndale communities, where a combined NIP and SBIF (small business improvement fund) program was instituted in 2001. In each of those communities, the City borrowed from $1 million to $4.9 million from local banks which It will repay with TIFF revenues as they become available. While the program shows some promise for broadening the range of people:who benefit from TIF, it remains small - both in terms - of the number of neighborhoods it impacts, and how much assistance It can provideto those neighborhoods. What Protections Exist for Homeowners and Renters? In order to truly provide better protection for residents in TIF districts, the program would have to change in at least two major ways: •;.The City would have to thoroughly-reform the public participation process to give taxpayers early notice about planned development in their communities and early access to the TIF acquisition map - along with a way to change these plans when they don't fit with the wishes of the community. • The City or County would have to establish a strong property tar, relief program for homeowners in rapidly gentrifying areas, as well as a strategy for protecting renters from the effects of rapid gentrification. Unfortunately, these protections do not existyet. In the meantime, there are two public policies that can provide some protection for homeowners and renters. Housing Impact Study As a result of the 1999 State TIF reform law, the City now must measure the impact a TIF will have on residents before it is voted on by httr)://wwu,.neb2.orLy/tifs/'housina.htm 6/2/2006 .NCBG: TIFs: Housing Page 4 of 6 the.City Council or the Community Development Commissio n. This new "housing_impact.stud.y," usually conducted by the same consultant that does the TIF eligibility study,.is.designed not only to identify the effect of the TIF on existing housing,.but also to require the City to submit a plan for relocating affected residents. The City must conduct a housing impact study if: At least 75 occupied residential units are located within the TIF; or • The TIF plans to remove 10 or more occupied residential units. This study must contain.information about: • The physical characteristics of residential properties that will be affected. • Whether-those properties-are occupied. • The racial and ethnic breakdown of the inhabitants of those properties (as of the last census). If residents will be displaced because of the TIF, the City must: • Provide money to help the occupants relocate to a new home. • Identify available, affordable replacement housing for the people who were displaced. If the City wants to increase the number of individuals who are displaced by even one household, it must hold a public hearing on the plan and get the approval of the Community Development Commission and the City Council. Chicago Homeowner Assistance (CHAP) Program One of the biggest potential problems for long-time residents who have found themselves living in a TIF district is the threat of rising property tax bills. In some cases, development in the area drives property values so high that people can no longer afford to live in their own homes. To help fight this problem, the Cook County Assessor's Office runs the Chicago Homeowners Assistance Program, or "CHAP" for short. CHAP makes reduced-interest loans (currently 3 percent) to homeowners to help them pay a portion of the increase in their property tax bill at a reduced interest rate. Homeowners do not have to pay back the loan until they sell their homes. The expectation is that sellers will get a higher price for their home and use a par of the increase to pay back the loan. http://w",m,.ncbc,.org/tifs/housino,.htm 6/2/2006 NCBG: TIFs: Housing Page 5 of 6 To be eligible for the CHAP program you must: • Own your home, and have lived there for at least five years. • Have seen your assessment increase by more than 21.4 percent (the City's average.increase) • Meet income requirements based on the size of your household (ranging from $35,150 for a one-person household to $66,250 for an eight-person household.). Critics say:the CHAP program is inadequate because it relies on loans instead of direct property tax exemptions or reductions. Others have criticized the program for applying only to those who already fully own their homes, and for not helping renters. For more information, contact the CHAP Hotline (in English and Spanish) at 312-745-CHAP or the Cook County Assessor's Office at 312-443- 7556. To request a presentation about CHAP to your community group, block club, or church, call.the.CHAP Program Coordinator, Vince McFallar, at 312-747-7591. What Does The City`Ihfean By'"Affordable"? Once a neighborhood gets the City-to agree in principle to support "affordable housing, then the next question is, "What is 'affordable' housing?" Unfortunately, agreeing on what constitutes affordable housing is often a major challenge in itself. A generally accepted rule of thumb is that an affordable rent can be no more than 30 percent of a person's income. For an individual making $22,000 per year, for example, an affordable rent would be $550 per month. For a family of four making $31,000, an affordabie rent would be $775, according to this definition. When the City is defining affordability in terms of a TIF deal, it compares a family's income to the .average income for the Chicago area, As part of its official "Application Checklist" that the Dept. o` Planning and Development distributes to developers seeking TIF subsidies, the City states that it "requires developers who receive TIF assistance for market rate housing [to] set aside 20% of the units to meet affordability criteria established by the City's Department o` Housing." Those affordability criteria, the policy goes on to say, are: • Rental Housing: Units should be affordable to persons earning no more than 80 percent of the area median income. • For-Sale Housing: Units should be affordable to persons earning no http://wwvc-.ncbg.org/tifs/nousinL.htm 6/2/2006 NCBG: UFs: Housing Page 6 of 6 more than 120 percent of the area median income. But how do those.guidelines.translate into:the real world? In order to calculate the median incomes, the City relies on estimates of the areas median,(average) income calculated by the U.S. Dept. of Housing and Urban Development (HUD). In general, "low-income" is defined as 80 percent of the region's median income, "very low-income" is defined as 50 percent of the median, and "extremely low-income" is defined as 30 percent of the area median. For a family of four in the Chicago Primary Metropolitan Statistical Area (PMSA), which includes suburbs outside of the city, the median income as of 2002 is 575,400. It is the PMSA number that HUD uses in its affordable housing calculations. For the purposes of calculating affordable housing guidelines, HUD caps the median income for a family of four at $54,400. In other words, even though the Chicago Area's actual median is $75,400,the City must use $54,400 to calculate the definitions of affordable housing. For the period beginning in January 2002, the median incomes for the purposes of calculating affordable housing were: Percent of Median Income Household 30% -- 50% -- so% -- 100% Size Extremely `Very Low Low Income Low Income In come 1 $15,850 $26,400 $38,100 $52,800 2 518,100 $30,150 $43,500 $61,500 3 $20,350 533,950 548,950 $67,900 4 $22,600 $37,700 $54,400 $751400 5 $24,450 $40,700 $58,750 $81,400 6 $26,250 $43,750 $63,100 $67,500 7 $281050 $46,750 $67,450 $93,500 8 $29,850 $49,750 $71,800 X99,500 Source: Department of Housing and Urban Development, FY 2002 Section 8 Income Limits ]oin • Contact • Feedback • About Us 2200-2005 Neighborhood Capital Budget Group http://ww"-.ncbg.org/tifs/nousinEi.'ntm 6/2112006 Coalition for a Livable Future - Victory.for Affordable Housing! Page 1 of 2 Join our email list ?c. Read our Privacv Policv. Support our work! Victory for Affordable Housing! Portland City Council unanimously passed a resolution to create a set-aside from urban renewal dollar for affordable housing. Citing the need to make Portland more family friendly and to respond to the challenge of unmet housing need,on April 26 the Portland City Council passed by a vote of 4-o a resolution to establish a Tax Increment Financing (TIF) set aside for the development,preservation, and rehabilitation of housing that is affordable to households with incomes below 8o%of median family income. "Portland is very fortunate to have elected officials that truly understand the needs of low income working families, and seniors and people with disabilities depending on fixed incomes," said Teresa Huntsigner of the Coalition for Livable Future. "Thanks to the leadership of Commissioners Sten and Adams,the City took a giant first step to securing significant resources to create rental and homeownership opportunities for those being left behind by Portland's housing market." The resolution instructs the Portland Development Commission work in partnership with the Bureau -of Housing and Community Development,the Office of Management and Finance,the Housing and Community Development Commission,and Affordable Housing NOW and other interested stakeholders to develop and present to Council by September t, 2oo6 either a implementation pian to create such a set aside fund or other options to ensure guaranteed funding for housing affordable to households with incomes below 8o%MFI. "Establishing the details of the level of the set aside,how the set aside will work in existing urban renewal areas, and how to deal with urban renewal areas that are zoned exclusively for industrial use will be crucial to meeting the intent of today's resolution: maximizing public resources to meet the identified housing need," said Ian Slingerland, executive director of the Community Alliance of Tenants. Creating an urban renewal set aside for affordable housing has been a central target of Affordable Housing NOW! since the coalition's inception four,years ago.Affordable Housing NOWT! supporters turned out in large numbers for today's hearing, with representatives from the Community Development Network, City Club of Portland, Stand for Children,the Coalition for a Livable Future, and four tenant leaders from the Community Alliance of Tenants delivering strong testimon}'. Orlisa Deschene, a former renter that lived in the Gateway urban Renewal Area was evicted from her http:/i'clfuturt.orQ/publications.fMksetasidc 6/2/2006 Coalition for a Livable Future - Victory for Affordable-dousing! Page 2 of 2 home shortly after it was declared an urban renewal area. With a baby due new any day, Deschene wz left to scramble to find a new home. {t :.,<:.. .,:.�....i,1...4i1:.:...-.•i.<...:.:..,:...»...� ..Vyi:.,:..".i Si,YM..1<!r:i.,M4a..:::._..... �.........::i_"�.....::..' e:. . .:. . , Urban renewal should benefit the entire commun tyr;' said esehen,e.:'':` 'trshou�ldam prove'M a existin P € community, not wipe it outsin orderYto build a new one fordable thousmg must-;be a ipriority..-h urba n. . ....:.:i.:....,,:.. _ n:.-::.:,.r:g.,._..... .,,.'. - .l - . �..:...r.-.is�4•�:y:..:.:4.%;' renewal a er..thou�ht ...... .,.., °�� e areas not an aft ..............: .... .... ...... .r7. ... .T .t�........... ..>..�..............:... �.:3'�i :...,..i.. .. I: .,. .. ._..... .. ..... r�.... .. .. iil l: .. ..... ...: ....a .�..ui:r.". :.� ..'..... is>;I.....i....':� ' :':f:l'.':::i., : .::.'•:.'::::1,:.:::.. Members of Affordable HousingNOW„,iwer,:.e most. 1To..eased�thLLaspectsrof;;therresolutio.ri that':s ecifiec allocation guidelines to meet the housingt bediskof.peopletat ogod NlYFIg „5o%;iVlFI;<.:and:-5i=8o°b �.. ..... .. ...: ............... MFI, and the requirement PDC, uorkwith.::BHD:sandtthe,City'Atuditorto: eport'onspenai =of TIF fo; g housing at all income ranges (rental:;and;'ownershtp) oyerthe�pastioy ars;againstrall T'IF�eyenue(by district and overall), as well as the:bud.geted:ancl`projected'TIFspending forhousingn`'these'zncome ranges over the next 5 years against projected revenues. http://clfuture.orgi'Publications/URAsetaside 6/2/2006 'Po'licy .800 Dakota County Tax Increment Financing Policy °Published.:9/16/02 POLICY STATEMENT Dakota"County will support housing, redevelopment,and renewal and renovation TIF districts that increase or:have a neutral:effect on the.number-of affordable-housing units in the community, clearly demonstrate that:.they meet the "but for"test,and meet at-least one of the following: 1.. Provide affordable housing 2. Inciude.livable community housing and provide mixed use such as a central city concept 3. Remove`blight conditions and contamination 4. Provide a net increase in livable wage jobs DEFINITIONS Affordable Housing: Low and moderate-income rental housing districts that provide: • 20%of the units affordable to families at 50% of median income,the maximum gross rent would be 30%of 50%of median income or • 40%of the units affordable to families at 60%of median income,the maximum gross rent would be 30% of 60%of median. Homeownership options that provide: • 50%of the families served are below 80% of median income and the purchase price.should.not be greater than the current purchase price limit established for First Time Homebuyer programs. Contaminated:The presence of hazardous substances, pollution, or contaminants that require removal or remedial action Livable Community: A community that is designed with 1)mobility options such as transit,walk, bike or drive,:2) protects and enhances natural resources, 3)Provides housing choices including single-family homes, condominiums and apartments in a variety of architectural styles and prices to meet the needs of people of all ages and incomes, and 4)a plan for mixed uses such as locating housing, workplaces, shopping, daily services, schools, parks, civic places and public facilities together in an area. Livable Community Housing: Housing located in a livable community. Livable Wage Job: Jobs that pay the minimum annual amount of money required to meet a household's basic needs, including food, housing, health care,transportation, child care, clothing/personal and taxes. The number is typically adjusted based on family size, whether one or two adults are working, and the household location (metro vs. out-state). Low income Housing:Housing occupied by persons whose income is at or below 50% of the area median income. Mixed Use: Developments that include housing, varied by type and prices, integrated with commercial development and places of employment. It includes those developments being accessible by multiple transportation modes. Moderate income Housing: Housing occupied by persons whose income is at or below 80% of the area median income. Project Area:The geographic area in which tax increment revenues may be spent. Project areas are designed by development authorities under applicable development laws. Dakota County TIF Policy Adopted 8/27/02, Published 9/16102 Page 1 Qualifying Inspection:The inspections performed.to.,document the status of the property to determine that the district meets the criteria as a.redevelopment district,a-renewal and renovation district, or other TI F district. Redevelopment: Actions taken to improve areas:aff.ected by.substandard buildings, blight, railroad or tank facilities, as described by Minn. Stat. §469.174, subd. 10. Tax Increment Financing:A statutory financing tool used to promote economic development, housing, redevelopment,renewal and renovation:.in::areas where it otherwise mould not have occurred. TIF enables an authority10"capture".property.taxe s.generated.b..y new development or redevelopment to pay for development expenses. A71F authority captures the increase in net tax capacity resulting from new development within a designated geographic area called a TIF district. Tax increment Financing Authority:An authority created pursuant to Minnesota Statutes to administer a.tax increment financing district. (See Minn. Stat. §469.174, Subd. 2.) Tax Increment Financing District:The geographic area from which tax increments are collected. 71ne.development authority defines the area in the tax increment financing plan. A district may be a contiguous or noncontiguous area within a project area. (See Minn. Stat. §469.174, Subd. 9) Tax Increment Financing Plan: A plan that must describe the project supported by tax increment financing, project objectives, development programs and activities to be undertaken,type and duration of district being created, parcels included in the district, estimated costs and revenues, impact on other taxing jurisdictions, and other details of the proposal. The TIF,plan may be approved by the municipality after the required public hearing is held. (See Minn.`Stat.§469.175, subds. 1,4.) SOURCE Tax Increment Financing is governed by Minn. Stat. §469.174-469.1793 as amended. Dakota County Board Resolution No. 02-404. GENERAL INFORMATION Dakota County must receive sufficient information to be able to determine that the qualifying criteria has been met. Depending on the 'type of TIF district, Dakota County requires documentation related to: • TIF pian • qualifying:inspections • analysis of net affordable housing impact within the TIF district or project area • analysis of net livable wage jobs • averaae market value of comparable housing in the city or area • traffic study, if appropriate As provided in state law and the Dakota County Transportation Policy Plan,the Dakota County Board of Commissioners shall require the authority to pay all or a portion of the cost of related or required improvements to the county transportation system from increment revenues, if the following conditions occur: 1. The proposed plan would, in the judgment of the county, substantially increase the use of the county transportation system and require construction of road improvements or incur other transportation system costs; and 2. The transportation system improvements are not scheduled for construction within five years under the county capital improvements plan, and, in the opinion of the county, would not be expected to be needed within the reasonably foreseeable future were it not for the tax increment financing district. For projects that are included in the capital improvements plan, the costs of road improvements or other road costs (e.g., traffic controls)which are in the determination of the County the result of a tax increment financing plan or an amendment to a TIF plan, will be subtracted from the County eligible project costs,with the balance of costs divided according to the cost sharing policy of the County Transportation Policy Plan. A County Board resolution is required for any significant deviation from this policy. Dakota County TIF Policy Adopted 8/27/02, Published 9/16/02 Page 2 Dakota County encourages municipalities to furnish TIF plans at least 45 days prior to the public hearing to coordinate the timeline of the road improvement cost estimates and the comments from the Dakota County Board. Dakota County reserves the right to identify costs after the public hearing if necessary. Dakota County will indicate its support/non-support for municipal TIF districts via comments in a County Board resolution provided to the city, except when a County Board meeting is not held within the 30-day response period. If the County Board cannot provide comments by resolution within the 30-day response period, comments will be provided following Board action. The Dakota County Board must approve or disapprove all CDA TI F Districts. Dakota County encourages municipalities to 1)limit the duration of the district and supports the early decertification of all TIF districts and 2)require that TIF assistance provided in housing districts be repaid at the time the property is sold or transferred if the home appreciates in value. Dakota County will consider a municipality's history regarding compliance with Dakota County's TIF policy and state law in its deliberation. PROCEDURES The Dakota County Treasurer-Auditor Department will develop and maintain procedures. Dakota County T1=Policy Adopted 8127/02. Published 9/16/02 Page 3 Affordable Housing Tax Increment Financing StateLegislative Campaign When it comes to developing affordable housing, state housing finance agencies often find themselves between the proverbial rock and a hard place. On one side, home prices and rents are rising faster than incomes;making it more and-more difficult for low.and moderate income people to find affordable housing and increasing the demand for state and federal housing programs that generate assisted rental housing .and help first-time .homebuyers afford a home. Onthe other side, federal housing programs,.,are being cut. States, facing their own budget crises,also are cutting back on housing programs.In Maine, for instance, the state portion of the Real Estate Transfer Tax dedicated to.housing has.been reduced by-$7 million a vear for the oast four years, the equivalent of a 77% decrease in funding. The dilemma for agencies such as the.Maine State.Housing Authority (MSHA) is to find ways-to finance the rising demand for and cost of affordable housing without using the traditional sources for housing subsidies, the state.and federal governments. MSHA addressed the issue by turning to a.traditional business financing tool and adding a twist to make it applicable to affordable housing. Affordable Housing Tax Increment Financing(AHTIF) MSHA looked to the Tax Increment.Financing C11F) districts — a tried and true tool for economic development .— and applied it for the first time to affordable housing development. An Affordable Housing TIF creates money for housing by allowing municipalities to capture the new propeM, tax revenue the housing constructed in the TIF district generates and using all or part of it to support affordable housing in the district, or expenses witmn the community- related to the housing, such as widening roads to handle increased traffic, or expanding schools to accommodate additional children. MSHA began working with interested legislators to develop new legislation that enabled municipalities to use TIF specifically for affordable housing. MSHA expected,and received, some philosophical opposition to the proposal from legislators who felt the measure was, in effect, a new, tax.. The fact that the AHTIF districts are.a local option — and therefore a matter of local control, an important issue in Maine -- helped persuade them the measure was not a tax.There were no organized groups opposing the measure. The Governor signed the AHTIF into law late in 2003. The legislation charged MSHA with developing and administering the Affordable Housing TIF program. Within weeks of issuing the program rule in 2004 MSHA was reviewing its rust application for a TIF district. 1 ' Communities mat• set..aside up to.-2 percent of their land.in a housing TIF district.The new property tax revenue may be dedicatedrto .allowable purposes for up to 30 years. MSHA must approve community applications for AHTIFs. The AHTIF creates a winning situation for all parties. • Citizens in need of affordable housing clearly benefit from the increased housing opportunities. • Communities benefit by gaining affordable housing without a decrease in state subsidies or increase in county taxes,two important provisions of the act. • Developers can use the AHTIF revenue to make a project feasible and rely less on the dwindling supply of traditional federal and state housing subsidies. • Since it is a local decision to apply for the district, only housing developments wife community support are financed under the Affordable Housing TIF concept. There is no increase in taxes for current taxpayers. AHTIF Enables Three Affordable Housing Projects To Go Forward Three affordable housing TIF districts are already in place, enabling developers to create 124 units of workforce housing and 30 units of senior housing that otherwise would not have been financially feasible. More than a dozen additional communities have expressed interest in the program. MSHA's initial Affordable Housing TIF application came from South Portland, where a developer had proposed converting the old buildings at the former state Youth Center into housing,plus adding new buildings and retail space at the property. It was an ambitious proposal that MSHA had agreed to help finance though the use o federal Low Income Housing Tax Credits and agent`. mortgage revenue bonds. Even With this assistance, the proposed development faced a financing gap that made it necessary to find a nein source of assistance. An Affordable Housing TIF district was established to fill the subsidy gap. The TIF will generate S14 million over 25 years in new property tax revenue, of which up to S6.5 million would flow, bat's into the development and $7.5 million would go to the city for related expenses. T"ne development will provide housing for an estimated 750 people. It includes 44 renovated units.of rental housing; 114 rental townhouse units; 54 units of senior rental housing; and 88 condominium units affordable to buvers with moderate incomes. Overall, about 100 of the units in the development will be affordable to lou- and moderate income households. In addition to the housing, the developmen- will include a 100.000. square foot office building and pubiic facilities, including a doth providing public access to Long Creel;, and public open space. The total development cost is approximately$59 million. The AHTIF therefore is resulting in the rehabilitation of old abandoned state prope=, and its conversion into affordable housing for 750 households. The community gains new property tax revenue without the penalties that can accompany= increased valuations while gaining badly needed housing. None of these things would have occurred without the new housing AHTIF district because existing subsidies were insufficient to make the projects .feasible. In 2005, two additional Maine communities successfully apolied to MSHA for approval of AHTIF districts. • In Augusta,the AHTIF is being used to convert a former downtown warehouse into 24 units of workforce fare h,housing—the first step in a proposed creation of a cultural center and possibly student housing,leading to a revitalization of the city's downtown core. • In Lewiston,an approved AHTIF will generate 5475,000 and'help fund the development of a 30-unit affordable senior housing apartment at the site of a former schoolin':the downtown section of the city. Augusta's proposal is a good example of how the AHTIF works to the benefit of all. The cite applied for a 50 percent AHTIF, meaning that half the money raised by the new housing will flow to the city as added revenue, and'half will help make the 24-unit housing affordable. The AHTIF is expected to generate $247,000 to the city, and the same amount to the housing, over the next 15 years. Since the AHTIF protects the city from an increase in county taxes, and from decreases in state revenue sharing and in the city's share of state education funding,it is saving Augusta an estimated $105,000 over the same 15 years. The net"cost'' to the city, then,is $142,000, or about$9,400 a year for 15 years, for the portion of the new revenue that is going to the housing. That's a good bargain for a$5 million investment in the downtown,plus creation of 24 new housing units. MSHA anticipates that the AHTIF will become more popular and more valuable each year as communities and developers become more familiar With what it can do and hoar it can bridge the gaps in funding. 3 FOR IMMEDIATE RELEASE -April 20, 2006 Statement Contact: Kathleen Gardip.ee, Office of Commissioner Erik-.Sten 503.349.1771 Commissioner Erik Sten puts schools, healthy neighborhoods, and affordable housing on center stage. "Today-,I will present the Portland City Council with two resolutions,which I believe, if accepted,will establish that Portland is willing to make good on its commitment to keep families and working people living in our city-. 1 ask the rest of Portland Cite Council to join me. We've all been struggling to come up with a way to solve the problems in our schools. Local commitments and the good news from the state will help to stave off the immediate crisis. While we are close to finding a solution that will get us through the next year, I t-drik we need to take a step bacE and stop improvising. We should write a script for the future o- Portland. The City- of Portland needs to be a permanent partner in this effort, and family- housing is a critical piece of the puzzle. We must find ways to increase the number of children in Portland Public Schools so that schools are funded at level where they- flourish,not falter. Increasing families in the inner neighborhoods will not only help Portland Public Schools but will take some of the pressure off outlying districts confronted with overcrowding. As I reflect on it; the connection between health-public schools and affordabie housing is obvious. 689i0 of those families that left the Portland Pubiic School District identified iack of affordabit housing as the central reason. -more- Recognizing this connection and takg1g�action9to:a'ddress it,will help us turn our rhetoric into action and keep Portland in the',':lead.as.the.mosf'family friendly city-in America. I propose the following two initiatives: 1. The City of Portland will launclirafociisecl'effort to retain and attract families with kids in our public schools, and to stabilize families otherwise subject to needing to move frequently from school to school. This schools-based focus on family housing is just one part of putting schools on center stage,with parks,planning and other efforts rounding out a neighborhood based model for community development. 2. Commissioner Adams and I will submit a resolution that will declare the City of Portland's commitment to dedicate a significant amount of tax increment revenue to increase affordable rental and homeownership opportunities in urban renewal area (URA) across the city-. The Portland City Council and PDC will begin work immediately, to develop options, (including a 30%TIF set-aside) to ensure guaranteed funding in URA's for housing for loan income working families, seniors and people with disabilities. Our goal is to ensure that everyone, especially children_, have a safe, stable home. We need to think of these efforts as intertwined as we work to set the stage for Portland's future. I love this city. It is up to us right now to determine our direction and find a place for every family in Portland." -end- ,Text of the two Resolutions follow'; Resolution on Schools.Famil, & Housing Initiative RESOLUTION NO. Begin a "Schools, Families, and Housing" initiative in partnership with local school districts and other community partners to retain and attract families with school-age children to live in Portland's neighborhoods and.attend Portland's public schools. WHEREAS,neighborhood livability, affordable housing opportunities, and strong schools are three of the main factors people consider when choosing a place to live and raise children; and WHEREAS,schools are.the natural.heart of aneighborhood, and a focal.point.for community development,recreation,.and neighborhood planning; and WHEREAS, Portland Public Schools are losing 300 to 500 students per year, annually reducing.the amount of.funds received.by:the district from the State by.approximately $1,500,000 to $2,500,000 annually; and WHEREAS,the other school districts that primarily serve Portland neighborhoods, including Parkrose, Centennial,Reynolds and David Douglas,have seen a dramatic increase in student enrollment over the past 5 years; and WHEREAS, a 2001 Portland State university study of households who moved in mid- year from the boundaries of the Portland Public-School District found that 76% of survey respondents said "yes"when asked, "Was anything about your former housing a factor in your decision to move?", and WHEREAS, researchers have established a direct correlation between homelessness and student achievement, and the State.of Oregon Department of Education estimates that some 1.620 students of the Portland Public School District are attending school as their families experience homelessness at some point throughout the school year; and WHEREAS,based on a report from the City Auditor's office from June 2002, about 41% of all new housing units constructed in Portland over a four-year period were supported in some way by a City housing subsidy, demonstrating that the City plays a significant role in the development of housing across the city's neighborhoods; and WHEREAS. a study released in 2006 by the Joint Center for Housing Studies of Harvard University concludes, "Local control over land use,uneven distribution of household income. and funding of services from local property taxes lead to an uneven distribution of public services across jurisdictions because homebuyers and renters sort themselves into communities that provide the level of public services they want and can afford", identifying the regional dynamics that influence housing and school choices that families make; and y J WHEREAS, a concentration of resources to create affordable opportunities for homeownership and rental housing, and geographic targeting of housing programs.are proven means of providing stability to individual families,neighborhoods, and school enrollment; and WHEREAS, an important part of retaining and attracting families to Portland's public schools is maintaining and strengthening the quality of school facilities and curricula; NOW, THEREFORE, BE IT RESOLVED,that the Portland City Council considers the health and wellbeing of local schools and the livability of Portland's neighborhoods to be of primary concern and consideration;-and BE IT FURTHER RESOLVED, local business and community organizations, such as the ' Portland Housing Center,home builders,real estate professionals, lenders, foundations, and other local governments, should be community partners in the planning and implementation of the initiatives; and BE.IT FURTHER RESOLVED, City staff from the Bureau of Housing and Community Development and other bureaus.will..work with Portland's school districts, other City bureaus, community partners, and other interested parties to develop a comprehensive approach to retain and attract families with school-aged children within and to Portland's neighborhoods; and BE IT FURTHER RESOLVED, the elements of this initiative may include but are not limited to: homeownership opportunities, affordable rental housing,renter stabilization programs, community land trusts,resident ownership models like co-housing, limited equity co-ops, mutual housing associations, and the promotion of new housing design and development models; and BE IT FURTHER RESOLVED, the Planning Bureau will assist in this initiative through the development of new family housing prototypes and by assisting in the analysis of demographic trends in housing; and BE IT FURTHER RESOLVED, other city bureaus and agencies will help in the effort to improve the quality of school facilities; and BE IT FURTHER RESOLVED, the Portland Development Commission should bring its resources and expertise to this effort to retain and attract families to Portland's neighborhoods, improve the quality? of school facilities and work with BHCD to promote workforce-related curricula in concert with PDC's economic development polices; and BE IT FURTHER RESOLVED, Portland Parks and Recreation will participate by linking its planning and development efforts to recreational needs and opportunities in and around tareeted school communities: and 4 BE IT FURTHERRESOLVED,.<the=Office of Sustainable Development will continue to work with Portland's public schools to improve resource efficiency,reduce operating costs, and create healthy school facilities; and BE IT FURTHER RESOLVED, City staff, coordinated by BHCD,will report back by September'l,2006 to City Council with a report on the number of families housed under this program, and an outline of bestpractices,new initiatives, and new partnerships and programs for review and consideration. Adopted by the Council, GARY BLACKMER Commissioner Erik Sten Auditor of the City of Portland Trell Anderson/Rich Rodgers By April 20, 2006 Deputy 5 b Resolution on Housing Policy for Urban Renewal Areas initiative RESOLUTION NO. Declares the City of Portland's intent to establish.a Tax Increment Financing(TIF) set aside.for.the.development,preservation. and.rehabilitation of housing that.is affordable to households with incomes below 800/o of median family income (MRI). (Resolution) WHEREAS, affordable housing for working families,people with disabilities, seniors, and low income households is a high priority for the City Council of Portland and others local housing agencies; and WHEREAS,.-the Portland City Council is committed to attracting and keeping families in Portland, both to maintain a healthy diversity in our communities and to.stabilize enrollment in Portland's school districts through increasing homeownership and affordable rental opportunities; and WHEREAS, housing is defined as affordable when a household is paying no more than 30%of gross income to housing costs; and according to the 2000 Census, 43% of Portland area households are rent-burdened, meaning they pay over 30% of their income for housing, and 21% are severely rent-burdened,paying over 501/,D of their income for housing; and WHEREAS, home-ownership is increasingly out of reach for mane Portland families as median home sale prices increased by 92%between 1995 and 2005, and median incomes in the Portland area only increased by 591io over the same period; and WHEREAS, the Comprehensive Plan Housing Policy provides the overall policy framework for City housing goals,programs, and funding decisions; and WHEREAS.. according to ORS Chapter 457.085 (3), Urban Renewal Plans, including TIF expenditures, must conform with the City's Comprehensive Plan and adopted Economic Development Plans; and WHEREAS. as part of urban renewal planning, PDC has adopted Housing Implementation Strategies for neve and existing districts that outline housing priorities for TIF expenditures including,but not limited to,housing that is affordable to households with incomes below 80% Median Family Income; and WHEREAS. the City of Portland has adopted several housing priorities including "Home Again: A 10-year Plan to-End Homelessness in Portland and Multnomah County," No Net Loss for affordable housing in the Central City, and the Affordable Housing Preservation Ordinance, and the City and PDC are partnering on a Cin of Portland Minority Homeownership Campaign to close the gap in the minority homeownership rate citywide and in urban renewal areas; and 6 WHEREAS, in 2003 the Bureau of Housing and Community Development(BHCD) found thatMultnomah County needs'7.8 90-more unitsofpermanent affordable supportive housing-for people with chronic mental illness, substance abuse, and developmental, serious physical/functional, or multiple disabilities; and WHEREAS, due to market pressures,the wage needed to afford a 2-bedroom apartment at Fair Market Rent in Multnomah County is S I3.90/hr;leaving affordable housing well out of reach for most low-wage workers,retired workers,people with disabilities and the elderly receiving Social Security; and . WHEREAS,federal support for affordable housing has declined in recent years,reducing Portland's local share of federal resources such as Community Development Block Grant and HOME,putting more demands on limited local resources for affordable housing; and WHEREAS, the State of California and municipalities therein have demonstrated that having a set aside of TIF revenues for affordable housing is effective redevelopment policy that both improves urban neighborhoods and provides housing options for low wage workers;seniors and people with disabilities; and WHEREAS, the Affordable Housing NOW! a coalition of over 40 local organizations including civic organizations, nonprofit housing developers and member-driven community groups has recommended a 30% set aside of TIF for affordable housing based on research on the practices of municipalities in the State of California, and NOW,THEREFORE,BE IT RESOLVED: the City Council requests the Portland Development Commission, in conjunction with the City Auditor and BHCD, to. provide a formal report to Council by July 31, 2006 detailing spending of TIF for housing at all income ranges (rental and ownership) over the past 10 years against all TIF revenue (by district and overall), as well as the budgeted and projected TIF spending for housing by income ranges over the next 5 years against pro)ected revenues; and BE IT FURTHER RESOLVED, that PDC will prioritize revenues from all Urban Renewal Districts for affordable housing in accordance with adopted City housing priorities including"Home Again: A 10-Year Plan to End Homelessness in Portland and Multnomah County,"No Net Loss for affordable housing in the Central City,the Affordable Housing Preservation Ordinance, and the minority homeownership campaign; and BE IT FURTHER RESOLVED, the City Council is committed to.establishing a policy to dedicate a percentage of Tax Increment Financing (TIF)revenues from all urban Renewal Districts citywide to an affordable housing set aside fund, or to create another mechanism to ensure predictable and adequate funding and prioritization of housing for individuals and families earning 80%MFI or less: and 7 BE IT.FURTHER:RESOLVED,the City Council requests the.Portland Development Commission work in partnership with the Bureau.of Housing and Community Development, the Office.of Management:and Finance, the Housing.and Community Development Commission, and Affordable Housing Now and other interested.stakeholders to develop.and present to Council by September 1„.2006 either.a implementation plan to create such:a set-aside fund or otheroptions to ensure guaranteed funding for housing affordable to households with incomes below 80%MFI; and BE IT FURTHER RESOLVED.,the recommended implementation.plan will include a timeline to begin implementation in the 2007-08 budget.cycle, a community outreach and involvement process, a.process.for annual monitoring,reporting, and reconciliation with PDC's annual budget and five(5)year plans; and BE IT FURTHER RESOLVED, the implementation plan will include.allocation guidelines.using the following income categories: 0-30%MFI, 31-50°X0 MFI, and 51-80% MFI to ensure that housing is available to.low income seniors,people with disabilities and hard working families in redevelopment areas across the City; it will also include a recommended process for establishing, monitoring and updating allocation guidelines: and BE IT FURTHER RESOLVED, City Council directs OMF, in consultation with PDC, to provide fiscal analysis of how each option, including a 301X0 TIF set aside, would impact future revenue projections and other urban renewal priorities. This analysis along will be presented to a joint City Council and Portland Development Commission worksession for discussion prior to determination of preferred option. Adopted by the Council. Commissioner Erik Sten Gary Blackmer Commissioner Sam Adams Auditor of the City of Portland Margaret Baa by April 20, 2006 8 Other.-programs: affordable housing: advance-planning: community planning:--department... Page] of 2 ,o .... ... C�-Seivices;4-Z-�-�epartrnents'� e=5ervices�;�-7nbs:J.:�lews ��:ublic'Reeora's`-`-;-_-- `�---� home >..departments > community planning >.:ad%vance:tilanning >..,affordable housing > other. programs I.Main Programs ;;,:;:. ,,., ■ Affordable+H ousina ■ CDBG/HOME Other Affordable Housing Programs {-i Competitive Process {{{ ■ Historic Preservation ■ LongfRange:�Planning AffordableHousing Programs . The City of Fort Collins considers the provision of housing as a basic human need, and therefore has assumed the responsibility to work ■ For towards increasing the availability of affordable housing.in the Agencies/Developers i community. The City's main objective is to cooperatively work with ■ For Citizens private, public and non-profit developers.in the creation and I:■ CDBG/HOME expansion of housing opportunities for..households of,all income levels and the preservation.of existing affordable housing stock The City of ■ Home Buyers I Fort Collins provides a number of programs for developers and Assistance residents of low income housing. ` ■ Land Bank o Other Programs - Administrative Construction Fee Exemption - Development Impact Fee Payment Delay Program 1 Boards - Development Plan Fee Waiver - Priority Processing for Qualified Affordable Housing Projects I ■ Housing Authority - Private Activity Bonds i ■ Affordable H ousina - Private and Non-Profit Affordable Housing Organizations Board i - Sales Tax Rebate Program ■ CDBG Commission - State and Federal Affordable Housino Programs General Administrative Construction Fee Exemption: I ■ About.Us/Contact Us This program allows certain construction fees-to be exempt for ■ Applications affordable housing projects. Fees for construction inspection fees, ■ Document Download development construction permit, right-of-way construction license ■ Educational Links fee, and street cut fee are eligible for exemption for affordable housing projects. Housing projects in which at least 51% of the units ! ' FAQ ' are affordable to households earning 800/6 or less of median income ■ Fundino History I will be entirely waived. Projects in which at least 5111/o of the units are I ■ Income & Housino affordable to households earning mote than 80%, but less than 9501 Charts of median income will be waved by one-half, For more information, ■ Local Housing Protects contact Pngineerino at 970-221-6605, . Mortgage Heip Infc j Development Impact Fee Payment Delay Program: i ■ Posters This'program provides the housing developer the opportunity to delay payment of impact fees on a qualified affordable housing project until a certificate of occupancy is issued. For more information, contact the ht[p://fcgoy.com/affordablehousing/other.pht) 6/2/2006 Other programs: affordable housing: advance planning: community planning: department_.. Page 2 of 2 r I Affo dab a Housing - PI ..... e... .:.... .i ...,.. ... :G.........:.'.::i ':�A DevelopmentPlan.. ee,;aWaa>vier..,. Affordable housing prpjects:are eligible for:.a,:'waiver'of:plan. submission fees based on`the:percentage.of affordable housing in a project.:For more information; contact'zthe Biiiidihg-Permits and Inspection Division at 970-221-6760. Priority Processing tor'Qualified Affordable Housing Projects: This initiative facilitates the development of affordable housing in Fort Collins by saving housing developers valuable time through an expedited development review and permitting process. For.more information,:contact th,. Affordable Housing Planner at 970-221-6758. Private Activity.?Ronds: Private Activity Bonds are bonds issued by the City to finance affordable multi-family rental housing. There is a list of locally established criteria.that must be met in order to qualify for these bonds. The base criteria requires.a minimum of 20% of rental units in a project be rented to households at 70% or less than Area Median Income (AMI) as determined by HUD. For more information, contact the Affordable.Housing Planner at 970=221-6758. Private and:Non-Prdfut Affordable:Housing.Organizations Private and non-profit organizations provide a wide variety of housing services. These include housing counseling, immediate and long-term provision of housing, housing finance programs, special care, and many other services. Sales Tax Rebate Program (not available at this time): This program rebates the full amount of City sales and use taxes paid for materials used in the construction of affordable housing units. An affordable housing project can also qualify for the deferral of the sales and use taxes until the time of issuance of certificates of occupancy. Staff estimates that sales and use tax rebate will save a developer on average between $650 to $850 per unit. State and Federal Affordable Housing Programs There are a number of State and Federal programs devoted to the provision of affordable housing. The Colorado Division of Housing has compiled a list of.programs. The most complete online resource for local housing community resources is ServiceNet. For information about on- and off-campus student housing, visit the Colorado State University website. Site: privacy policy I disclaimer I n 1996-2000 ; .;,;:;, Ger:uRrex Dottie. http://fcgov.com/affordablehousingiothcr.php 6/2/2006 Breakthroughs: Volume 3 Issue 3 Page 1 of 6 : 1atbry Barriersjeannihouse la ; . : Solutions that;support affordable housing;. Volume 3, Issue What's New 3 > About Us Search Database Print Version > Barrier& Solution Counts > Newsletter > Join Us Impact Fees: How �:. Relevant AffordableAousin.g Fares Publications > News > Brochure The development community has long argued that the imposition of impact fees increases the cost of housing. According to some, these > Submit a Story costs have an inordinate impact on those attempting to create new > Contact Us affordable.housing. In .response, many communities have developed impact fee waivers, exceptions, and rebates to reduce the deleterious effects on affordable housing. Varying Approaches Many communities waive or reduce development fees on affordable housing. San Antonio, Texas allows a reduction of up to 100 percent of the local impact fee. The City ordinance requires the Council to decide which projects qualify for the program on a case-by-case basis. In contrast, Chicago reduces, but will not fully eliminate, its open space impact fee for certain types of housing. -For example, a developer of an affordable 1,500 square foot home in 2000 would have paid approximately $100 as an open space impact fee; considerably less than the $625 fee for a market rate unit of the same size. Some communities waive different types of fees. King County, Washington does not require affordable housing developers to pay road or school fees. Santa Fe, New Mexico waives building permit fees for non-profit affordable housing developers and reimburses these fees for profit-based developers who certify that the units are affordable. In addition, Santa Fe exempts affordable housing from capital development impact fees and utility expansion charges. Rather than waiving fees, other communities have created funds to reimburse developers for the cost of paying fees. Fort Lauderdale and Albuquerque are two such communities that have programs offerinq fee rebates to developers of certain types of housing. htm:iivA-A,,A7.huduser.orQirocinewsletterivol3iss3more.html 6%2;2006 Breakthroughs: Volume 3 Issue 3 Page 2 of 6 ::::::•:;.:-...... .. :..,... I ,: a t. . .. ., _ :..::..:.:...: �iocLas .o�r1 While communities limit the fee waiver or fee rebate beneft-Y' affordable housing developments, how they define `affordab:fe-ho:using'.-:; ::.°.. varies .from place to place. :Sorine''communit'ies offerthe.beneftto certain affordable housing programs that they have identified. Hartford, Connecticut waived certain.>.permit;:fees..for,.pro.perties built or rehabilitated under its Urban Homesteading Program. Reno, Nevada waives park fees or dedications for houses developed under its "Entry Level Housing Program." Other communities define eligibility by the size of the development. Greensboro, North Carolina offers exem.ptions.�and.refunds to developers who build housing that meets:eertain"8ize.requirements. Detached,.single-family, owner-occupied,,n-times. can�.qualify if the unit is 1,200 square feet or less and an attachedFun'i.t:;can.:.qualify if it is 1,000 square:.feet or>'less. •Rental units,qualify Tor.a:--fee:refund if the owner rents 60 percent of the units in the development at or below the applicable fair market rent, Most communities base the eligibility for fee waivers or rebates on the incomes and payments of those who will eventually reside in the housing. Fort Lauderdale defines housing.as affordable when it meets two criteria: residents earn up to 80 percent of the median area income and residents pay no more than 30 percent of their income for housing. Units constructed under these provisions may be offered for sale or rent. King County, on the other hand, differentiates between renters and homeowners. In order to qualify for the fee waiver, rental housing must serve those earning below 50 percent of area median income. When looking at housing for.sale, the income limit is 80 percent of area median income. Condusion Impact fees have become an important tool that local governments use to finance public infrastructure. These fees can also help keep local tax rates down. Many communities, however, have acknowledged that these fees have created an undue burden on those least able to afford increased housing costs. These communities have developed programs to waive or reimburse fees that would otherwise add to the cost of producing affordable housing. If your, community is considering a reevaluation or revision of its impact fee ordinance, please take a few moments to see now other cities have addressed this issue. If your community is one that has taken steps to address the issue, consider sharing your solution with us by calling 800-254-2691, option 4. And who knows - you might just find yourself in the pages of a future issue of Breakthroughs! http:/i'vc,%Am,.huduser.org/r'oc/'newsletter/'vol31ss3more.htm] 611'2'2006 PDC Housing Development Development Fee Waiver Program for Affordable Housing Page 1 of 2 Housing Services HomePurchase Home Housing Development Improveme Housing Developme Development Fee Waiver Program for Affordable Housing Housing Da (Non-Profit Organizations Only) & Publicatic PDC Housir. The PDC Development Fee Waiver Program, for Non-Profit IPartners Affordable Housing projects in the City of Portland, offsets some of (Asset the development fees associated with the rehabilitation or new Manaaemer construction of affordable housing units.The Fee Waiver benefit amount is calculated from the number of affordable units created (Housing for any.given project.The developer will receive a "aift certificate," Contacts which can be applied towards certain development fees.The following is a summary of the PDC Development Fee Waiver Program. For Sale Criteria Buyers must be first time homebuyers, earn less than 100% of MFI adjusted to household size (see attached income levels) at time of initial occupancy and the maximum sales price for each unit may not exceed £170,000. Rental Criteria Units must be leased or rented to tenants whose gross household income is equal to or less than 60% of the MFI, and the maximum rent burden must be at 600% of MFI (see attached rent levels)for a minimum of 60 years. If a tenant's income increas6s above the threshold, the next available unit must be rented to tenant(s) who meet the affordability standard. The PDC Development Fee Waiver program may be applied to the following development fees: 1. Bureau of Buildings and Bureau of Planning fees (fee code 100-299, 808, 810, 817), 2. Bureau of Transportation Plan Review, Turnaround Surcharge, Curb and Sidewalk fees (fee codes 303, 304, 305, 365 and 366). 3. Bureau of Parks and Recreation Tree Inspection fees (fee code 601, 602). 4. Fire Bureau's Fire Code Enforcement Fee (fee cooe 701). The PDC Fee Waiver Program is intended to reduce develooment costs by waiving a portion of those fees listed above and is unlikely to cover all of the development fees associated with a proiect. The maximum total Devemoment Fee Waiver aiven for qualified units, regardless of fees assessed, may not exceed the following: Multi-Family New Constr.: 55000 for two units; $500 for each additional unit Multi-Family Rehab.: $5000 for two units; 5350 for each additional unit Single Family New Construction: $1,700 per uni- Single Family Rehabilitation: $1,500 per unit http://wv vi.pdr.us/housing_sery/hsg_development/dev-fee-waivers.asp 6/2/2006 PDC Housing Development : Development Fee Waiver Program for Affordable Housing Page 2 of maximum rer urganization: :b:)u,vuu/riscai year Fee waivers are subject to the availability of PDC funds. PDC will cease to issue Development Fee Waivers when the annual allocation of PDC Development Fee Waiver funding has been reserved and/or expended, or, when an organization has reserved up to their annual maximum of$50,000. Eligible Properties: • Applicant must be a Non-Profit developer not receiving other funding from PDC. • Applicant must have site control of the property. To Apply: Submit the following paperwork to PDC once you are ready to submit your plans to the Permit Center. 1. A fully completed application form. For Sale units require individual applications for each unit.Rental units-may use one application per property. 2. Evidence of an organization'.s.status as an Eligible Non-Profit Organization. 3. A Warranty Deed, clearly stating that the appiicant has site control and/or ownership of the land, and a full and recorded legal description. 4. A Partition, Plat or Title Report Map clearly identifying the property. The Fee Waiver is valid for a period of four months for projects with one to four units and for nine months for projects with more than four units. If the fee waiver is no; drawn down prior to the expiration date, the Project Sponsor must rea poly. It is the Applicant's responsibility to track fee waiver expenditures closely. If the Applicant exceeds the fee waiver amount, the Applicant is required to reimburse the PDC for any overage.. Please note that units which do not meet the criteria of the program in Mixed-Income or Mixed-Use projects, are not eligible for the waiver. Howeve-, Mixer—income or Mixed-Use projects may apply for the portion of the project that meets the afforcaoiliry requirements. PDC also administers the Affordable Housinq System Deveiopment Cnarge !SDC; Exemption Program for the Wate-, T ransporration and ParKs Bureac.These exemption_ are available for Organizations developing new residential units that rnee; similar affordability requirements. To receive additional information on the Fee Waiver or SDC Exemption Program or if you have any questions please contact the PDC Program Administrator at 503-623- 3269. [; i for PDC's News &Information E-Mail Lists IG �p Search: htm:/.%Wr'AM7.udc.us/housins serv/hsL- de-,TeloT)mentidev-fee-waivers.asp 6:'Z'2CIOt� COUNTY PLANNING COMMISSION CONTRA COSTA COUNTY STATE OF CALIFORNIA RESOLUTION NO 24-2006 RESOLUTION OF THE COUNTY PLANNING COMMISSION OF THE COUNTY OF CONTRA COSTA, STATE OF CALIFORNIA, INCORPORATING RECOMMENDATION ON THE PROPOSED HOME OWNERSHIP PARTNERSHIP ENTERPRISE (HOPE)PROGRAM WHEREAS, the HOPE Program was presented to the County Planning Commission (CPC)by Commissioner Murray; and WHEREAS, the HOPE Program was developed as an alternative approach to the proposed Inclusionary Housing Ordinance (IHO); and WHEREAS, the HOPE Program proposes development incentives for the development of affordable housing.: and WHEREAS, the HOPE Program proposes home purchase assistance to lower and moderate income households: and WHEREAS, the HOPE Program proposes development of new rental units for very-low income households: and WHEREAS, the CPC considered the MOPE Program at its April 25, June 13, and July 11, 2006 meetings where all persons interested might appear and be heard; and WHEREAS. the CPC fully reviewed, considered, and evaluated all the materials provided; and WIIEREAS, the CPC considered aspects of the HOPE Program may have applicability as a part of the proposed IHO; and NOW, THEREFORE, BE IT RESOLVED that the County Planning Commission recommends to the Board of Supervisors of the County of Contra Costa, State of California, that the Board of Supervisors DIRECT Community Development Department staff to take those steps necessary to take the HOPE Program from its current fonn and develop it to a point where it can be included in the County's Inclusionary Housing Ordinance as an approved alternative method of meeting the requirements of the Inclusionary Housing Ordinance. BE IT FURTHER RESOLVED that the direction to prepare this resolution was given by the County Planning Commission at its meeting of July 11,2006 by the following vote: AYES: Commissioners—Battaglia, Clark, Murray NOES: Commissioners— Snyder,Terrill ABSENT: Commissioners—Gaddis ABSTAIN: Commissioners—Wong BE IT FURTHER RESOLVED that the Secretary of the County Planning Commission shall respectively si;n1 and attest the certified copy of this resolution and deliver same to the Board of Supervisors all in accordance with the Planning Laws of the State of California. Don Snyder, Chair County Planning Commission County of Contra Costa State of California I, Dennis M. Barry, Secretary of the County Planning Commission certify that the forgoing was duly called and approved on July 11, 2006. Dennis M. Barry, A1CP Secretary of the County Planning Commission County of Contra Costa State of California Attachment C Contra Costa County Agenda Item # Community Development Department CONTRA COSTA COUNTY PLANNING COMMISSION .TUESDAY, JUNE 27, 2006 STAFF ANALYSIS OF HOPE PROPOSAL I Background: On April 25, 2006 Commissioner Murray submitted the HOPE Proposal (HOPE) to finance homebuyer second mortgages to the Contra Costa County Planning Commission (CPC) for consideration. The CPC continued the public hearing until June 27, 2006 and scheduled a study session on June 13, 2006.. Commissioner Murray brought forward a revised version of HOPE for discussion on June 13. Due to the broad scope, and the legal and technical issues in the proposal, the CPC requested County staff analyze HOPE and report back to the CPC. Staff has focused on several major concerns with the proposal. There may be additional issues which are not included in this report. II Recommendation: None. The purpose of this staff report is to evaluate the feasibility of the HOPE Program as it was presented to the CPC on June 13, 2006. III HOPE Program: HOPE is a multi-faceted proposal to fund affordable housing opportunities in Contra Costa County. IV Issues: HOPE proposes to fund affordable housing opportunities through multiple revenue sources. Those sources are projected to raise several million dollars for the program. Significantly, Commissioner Murray emphasizes that HOPE will not have any impact on the County's general fund. Not only is this not the case, but if the program turned out to be as successful as presented, the impact to the County's general fund and other agency's funding would be substantial. There are significant constraints and negative impacts associated with many of those revenue sources. Following is a summary of proposed revenue sources and the issues with those sources. 1. Proposal: Tax increment financing (TIF) on homes and apartments in the program. HOPE proposes that the increase from the property tax obligation immediately before a property enters into the HOPE program and after the property has been developed and purchased by the participating household be provided directly to the HOPE program. Issue; Article XVI, Section 16 (Public Financing) of the California Constitution allows tax increment financing only in redevelopment areas. Including non-contiguous sub-areas into a redevelopment area for the purposes of obtaining tax increment revenue is specifically prohibited (California Health and Safety Code Section 33320.2). Even if the proposal were consistent with State law, it would have a deleterious effect on the County's general fund as well as on the revenues of the many special districts that receive property tax revenues. Property taxes are used for numerous purposes. The average distribution of property taxes in Contra Costa follows. The specific distribution varies with each tax rate area. • 48 percent — Schools 20 percent — Special Districts • . 13 percent — County General Fund • 11 percent — Redevelopment A9encies • 8 percent — Cities Examples of special districts that receive property tax dollars include fire, sanitation, flood control, water, BART, mosquito abatement, air quality management, and parks. 1 2. Proposal. HOPE proposes that"building" fees be suspended, or deferred, until an affordable unit leaves the program. Apparently "building fee"..is being used as a generic term that includes community development (CD), public works, and building department fees, as well as other fees such as environmental mitigation, school, fire, park, and traffic fees. . Issues a. The County has no jurisdiction to defer fees collected by special districts. b. Deferral of fees charged specifically to mitigate environmental impacts of a development could violate the California Environmental Quality Act as well as the Mitigation Fee Act. Additional research on this point . would be required before proceeding. c. The County community development, public works, and building departments charge fees to cover costs in providing services. Should these fees be deferred, general fund revenues would be required to cover departmental costs. The County (and some special districts) currently face significant revenue/expenditure challenges which would be exacerbated by shifting general fund revenues to support the program. d. The mechanism for paying the deferred fee is not fully discussed. It appears that the homeowner is responsible for paying the fee out of the appreciation in the home. It is unlikely a homebuyer would understand this requirement at the time of purchase. Educating potential participants in this regard would add to the administrative burden of the program. 3. Proposal., HOPE proposes to provide a 20 percent density bonus to projects participating in the programa HOPE proposes to charge a fee for all units developed in the County, which appears to qualify the project as "participating". Issues: California Government Code Section 65915 (Density Bonus Law) states that developers may request a density bonus if they provide units for very-low income, lower income, senior housing, or common interest developments. Density Bonus Law requires that at a developer's request, the County provide a density bonus between 5 and 35 percent based on I% the number, type, and affordability of units. To reach a 20 percent density bonus, the development.would have'to include either 5 percent very-low income units, 10 percent low income units, 25 percent moderate income units, or 35 senior units. The HOPE proposal is inconsistent.with this law and could not be implemented as proposed. 4. Proposal: HOPE proposes that realtors contribute one percent of their sales commission to HOPE if they wish to assist buyers in the HOPE program. The efficacy of this feature of the program is unknown, however, . assuming realtor buy-in, this may be a consideration for existing homes. However, newly constructed homes are often sold by agents working on a flat fee, or salary. Therefore, they would not be able to make a contribution to HOPE. 5. Proposal: HOPE expects to accelerate program financing by bonding against future tax increments, selling HOPE mortgages, and borrowing against future revenues Issue: The anticipated revenue stream from this approach appears to be overly optimistic. a. As stated above, staff does not anticipate any new TIF areas for HOPE. Without the new TIF areas, this anticipated funding will not be available. b. A second proposed source of capital is obtained by selling HOPE mortgages to private investors. Without TIF, there would be fewer mortgages made by HOPE. Therefore, there would be fewer mortgages to sell. In addition, an investor would not pay the full cash value of the mortgage principal plus anticipated interest. How much the cash value would be discounted to make HOPE mortgages an attractive investment is not known at this time. 6. Proposal.- HOPE would be administered by a new non-profit entity that would receive seven percent of all program revenues. Issue: The proposed TIF and fee deferrals would decrease revenues to CD. Planning activities, implementation, and compliance monitoring related to HOPE would increase CD responsibilities and costs. However, all administrative fees go to the new non-profit and none are provided to CD to defray its costs. This would place an additional burden on the County general fund, although the amount required is not possible to predict with the information available. V Conclusion/Next Steps: The HOPE proposal is inclusive, and far reaching. It strives to address a real and pressing need in Contra Costa. However, in its current form, it does not appear to staff to be feasible, nor a reasonable replacement for the proposed inclusionary ordinance. Staff understands that members of the Housing Trust Fund Initiative Steering Committee have invited Commissioner Murray to meet with them and discuss this important effort. Staff believes this would be an excellent opportunity to work with experts in the field of-affordable housing and public finance and further refine the HOPE proposal. SEP-22-2005 15:25 CCC DEVELOPMENT DEPT 1 925 3351255 P.03 PROOF OF PUBLICATION (2015.5 C.C.P.) STATE OF CALIFORNIA County of Contra Costa I am a citizen of the United States and a resident of the County aforesaid; I am over the age of eighteen years, and not a party to or interested in the above-entitled matter. I am the Principal Legal Clerk of the West County Times, a newspaper of general circulation, printed and published at 2640 Shadelands Drive in the City of Walnut Creek, County of Contra Costa, 94598. And which newspaper has been adjudged a newspaper of general circulation by the Superior Court of the County of Contra Costa, State Of California, under the date of August 29, 1978. Case Number 188884. The notice, of which the annexed is a printed copy (set in type not smaller than nonpareil), has been published in each regular and entire issue of said newspaper and not in any supplement thereof on the following dates,to-wit: Seot 15, all in the year of 2006 I certify (or declare) under penalty of perjury that the foregoing is true and correct. Exe to at Wafnut Crsek, Californi O his h 8 daY f September, 2 6 Signature West County Times P O Box 100 Pinole, CA 94564 (510) 262-2740 Proof of Publication of: (attached is a copy of the legal advertisement that published) SEP-22-2006 .15:24 CCC DEVELOPMENT DEPT 1 925 3351265 P.02 fioY10E OF A PUBLIC HEARING You are hereby notified that on TUESDAY, SEPTEMBER 26, 2006 at 1:30 P.rn. In Room 107, McBricn Administration Building, 651 Pine Street. Martlnea. California, the Board of SUDervisors will consider a TEXT AMEND- MENT to the County Ordi. nance Code as described a5 follows; Inelualonary Housina Ordidafte(ZT060M)r The Incluslonary Housing Ordinance (Ordnance) Is a County initiated Dro- posal to add Chaoter 822- 4 to the County ordi- nance Codc to reouire new residential devel9qp• ments to include a mini- mum percentage Of dwelling units Inat are af- fordable to very-low,low- er,and moderate income households.In residrntlal developments of five or more dwelling units, 15 percent Of the dwelling units must be affordable. Oevelonments of four or fewer units are no: sub• iect t0 the requirements of the recommended Or. dinance,The recommend. Cd Ordinance provides Some alternative Comol, ance optlons for all Af- fected developments in. Cluding the payment Of fees in lieu of develOp- ment. The recommended Ordinance also estd0- lishes rental and sale re- strlcti0n5 on inclusionary units that are enforced by a recorded agreement De• tween the County and the devCloper.For nurooses Of COrnpliance with the orovlslons of the Califor• nia Environmental Quality Act .(CEOA), A Negative peclaration Of Environ- mental Significance (no Environmental ImDact Re- Dort required) 1145 booft. i5sueci for this project-I' you Challenge the ppro)'ect in tour.you mHy bC lim- ited to raping only thg Sc issues you Or someone else.rinsed at the public hcannt, described in ShiS notice,or in written col• res Donoence aelivered t0 the County at.or prior to, the public hearing. For further details, con- tact the Contra Costa County Community Devel- opment Department, 651 PinC Street,Martinet.Cal- IfOrnla, Or Kara Il at 925-335.7223. DCnni;,M.Barry,AICP Community pevclopmcnt Director Lcgal WCT 7859 Publish SeDtem. t)cr 15. 2006 SEP-22-2000 15:25 CCC DEUELOPMENT DEPT 1 925 ?351265 P.04 NOTICE OF A PUBLIC NEARING You are hereby notified that art TUESDAY, SEP- TEMBER 26. 2006 at 1:90 p.m. in Room 107, MCBri- en Administration Build- ing,651 Pine 5treet.Mar- tinet. California, the Hoard of Supervisors will consider a TEXT AMEND- MENT to the County Crdl- nance Code as described as follows: Inclusionary Housing Or- dinanc!(TT060002): The Incivslon ary Housing Ordinance (Ordinance) is a County fnitl ttcC prc- 005al to add ChaD:cr$22• 4 to the County Ord mance Code.to require new reSidCmtlal develop- ments to Include a mini- mum percentage of dwelling units trial are af- fordaOlc t0 very-low.low- er.and moderate income households.In residential development; of five Or more dwelling units. 15 Percent Of the dwelling units must be affordable Developments of ?Our or fewer unit: arc not sub- ject to tnc rcauircrncnts of the recommended Or. dirtance.The recommend- ed Ordinance provides some alternative compli- ance options for all af- fected deveioom¢nts in. cludln9 the payment of fees in lieu of develop- ment.The recommended Ordinance also estab- IlsheS rental and safe re- strictions On incluslonary units that are enforced by a recorded agreement be- tween ShC County and the developer. For purposes of compli- ance with tme provision- of the California Environ• mental duality Act (CEOA),A Negative Decla• talion of Environmental Significance (n0 £nvlron- mcntal Impact Report re- gvircd) ha, been issued ter this prolcgt. If you challenge the Droi- act in court, you may be limited to raising only tnose issues you Oe someone else raised at the oubiic hearing descri- bed in this nolicc. or in written corresoondericc delivered t0 the COvnty at. or Prior to.the public nearing. For further details, con- tact the Contra Costa County Community Dcvgl- OPment Department. 651 Pine Street,Martinez.Cal- ifornia. Or Kara DOuLIaS at 925-335-7223. Dennis M.Barry.AICP .Community Development Director Legal CCT 6651 Pti iish September 15. 2006 SEP-22-2005 15:25 Chir DEUELOPMENT DEPT 1 925 3351265 P.05 PROOF OF PUBLICATION (2015.5 C.C.P.) STATE OF CALIFORNIA County of Contra Costa I am a citizen of the United States and a resident of the County aforesaid; I am over the age of eighteen years. and not a party to or interested in the above-entitled matter. I am the Principal Legal Clerk of the Contra Costa Times, a newspaper of general circulation, printed and published at 2640 Shadelands Drive in the City of Walnut Creek, County of Contra Costa, 94598. And which newspaper has been adjudged a newspaper of general circulation by the Superior Court of the County of Contra Costa. State of California, under the date of October 22. 1934. Case Number 19764. The notice, of which the annexed is a printed copy (set in type not smaller than nonpareil), has been published in each regular and entire issue of said newspaper and not in any supplement thereof on the following dates, to-wit: Sept 15, all in the year of 2006 I certify (or declare) under penalty of perjury that the foregoing is true and correct. r c ed at Walnut Creek, Californ I is 18 ay of September, 06 ........................................................... ....... ............ $ignature Contra Costa Times P O Box 4147 Walnut Creek, CA 94596 (925) 935.2525 Proof of Publication of: (attached is a copy of the legal advertisement that published) TOTAL P.05 RECEIVED OCT 0 '5 2006 CLERK BOARD OF SUPERVISORS CONTRA COSTA CO. NOTICE OF A PUBLIC HEARING You are hereby notified that on TUESDAY, SEPTEMBER 26, 2006 at 1:30 p.m. in Room 107, McBrienAdministration Building, 651 Pine Street, Martinez, California, the Board of Supervisors will consider a TEXT AMEND- MENT to the County Ordi- nance Code as described as follows: Inclusionary Housing Or- dinance(ZT060002Y. The Inclusionary Housing Ordinance (Ordinance) is a County initiated pro- posal to add Chapter 822- 4 to the County Ordi- nance Code to require new residential develop- ments to include a mini- mum percentage of dwelling units that are af- fordable to very-low,low- er,and moderate income households.In residential developments of five or more dwelling units 15 percent of the dwelling units must be affordable. Developments of four or fewer units are not sub- ject to the requirements of the recommended Or- dinance.The recommend- ed Ordinance provides some alternative compli- ance options for all af- fected developments in- cluding the payment of fees in lieu of develop- ment. The recommended Ordinance also estab- lishes rental and sale re- strictions on inclusionary units that are enforced by a recorded agreement be- tween the County and the developer-For purposes of compliance with the provisions of the Califor- nia Environmental Quality Act (CEQA), A Negative Declaration of Environ- mental Significance (no Environmental Impact Re- port required) has been issued for this proiect.lf you challenge the prof-pct in court,you may be lim- ited to raising only those issues you or someone else raised at the public hearing described in this notice, or in written cor- respondence delivered to the County at,or prior to, the public hearing. For further details, con- tact the Contra Costa County Community Devel- opment Department, 651 Pine Street,Martinez,Cal- ifornia, or Kara Douglas at 925-335-7223. Dennis M.Barry,AICP Community Development Director Legal PT/VT,SRVT 9408 Publish September 15, 2006 THE VALLEY TIMES (Incorporating The Pleasanton Times) P.O. Box 607 - Pleasanton, Calif. 94566 AFFIDAVIT OF PUBLICATION The undersigned declares and says: That he is and was during all the times herein mentioned a citizen of the United States, over the age of 21 years, and neither party to nor in any way interested in the matter of action herein set forth, and is and was competent to be a witness in said matter of action. That he is now and was at all times mentioned the Publisher/Legal Clerk/Legal Coordinator of THE VALLEY TIMES, incorporating the Pleasanton Times and is now, and was all the times therein mentioned a newspaper of general circulation printed and published in the City of Pleasanton, Township of Pleasanton, County of Alameda, State of California, and as such has now at at all times had charge of all legal notices and advertisements in said newspaper; and that said THE VALLEY TIMES, incorporating The Pleasanton Times is now and was at all times herein mentioned a newspaper of general circulation as that term is defined by Section 6040.5 of the Government code, and as provided by said Section is published for dissemination of local and telegraphic news and intelligence of general character, having a bonafide subscription list of paying subscribers, and is not devoted to the interests or published for the entertainment or instruction of a particular class, profession, trade, calling, race or denomination, or for any number of such classes, professions, trades, callings races, or denominations; that all of said times said newspaper has been established, printed, and published at regular intervals in said township, county, and state, for more than a year preceding the date of the first publication of the notice mentioned; the said notice was set in type not smaller than nonpariel, and was preceded with words in blackface type not smaller than nonpariel, describing or expressing in general terms the purport and character of the notice intended to be given. That the Public Hearing a copy of which is attached hereto, was published in said newspaper, The Valley Times (incorporating The Pleasanton Times) on the 151h, of Sept, all in the year of 2006 I ce (or de-fibre) under penalp//-of perju that the o g is true and correct. for / ................................................................... ........ Signature Executed at Walnut Creek, California. Date: September 18, 2006 NOTICE OF A PUBLIC HEARING You are hereby notified that on TUESDAY, SEPTEMBER 26, 2006 at 1:30 p.m. in Room 107, McBrien Administration Building, 651 Pine Street, Martinez, California, the Board of Supervisors will consider a TEXT AMEND- MENT to the County Ordi- nance Code as described as follows: Inclusionary Housingg Or- dinance (ZT060002):The Inclusionary Housing Or- dinance (Ordinance) is a County initiated proposal to add Chapter 822-4 to the County Ordinance Code to require new resi- dential developments to include a minimum per- centage of dwelling units that are affordable to very-low,lower,and mod- erate income households. In residential develop- ments of five or more dwelling units 15 percent of the dwelling units must be affordable. De- velopments of four or fewer units are not sub- iect to the requirements of the recommended Or- dinance.The recommend- ed Ordinance provides some alternative compli- ance options for all af- fected developments in- cluding the payment of fees in lieu of develop- ment. The recommended Ordinance also estab- lishes rental and sale re- strictions on inclusionary units that are enforced by a recorded agreement be- tween the County and the developer. For purposes of compli- ance with the provisions of the California Environ- mental Quality Act (CEQA),A Negative Decla- ration of Environmental Significance (no Environ- mental Impact Report re- quired) has been issued for this project. If you challenge the proj- ect in court,you may be limited to raising only those issues you or someone else raised at the public hearing descri- bed in this notice, or in written correspondence delivered to the County at,or prior to,the public hearing. For further details, con- tact the Contra Costa County Community Devel- opment Department, 651 Pine Street,Martinez,Cal- ifornia, or Kara Douglas at 925-335-7223. Dennis M.Barry,AICP Community Development Director Legal WCT 7878 Publish September 20, 2006 PROOF OF PUBLICATION (2015.5 C.C.P.) STATE OF CALIFORNIA County of Contra Costa I am a citizen of the United States and a resident of the County aforesaid; I am over the age of eighteen years, and not a party to or interested in the above-entitled matter. I am the Principal Legal Clerk of the West County Times, a newspaper of general circulation, printed and published at 2640 Shadelands Drive in the City of Walnut Creek, County of Contra Costa, 94598. And which newspaper has been adjudged a newspaper of general circulation by the Superior Court of the County of Contra Costa, State of California, under the date of August 29, 1978. Case Number 188884. The notice, of which the annexed is a printed copy (set in type not smaller than nonpareil), has been published in each regular and entire issue of said newspaper and not in any supplement thereof on the following dates, to-wit: Sept 20, all in the year of 2006 1 certify (or declare) under penalty of perjury that the foregoing is true and correct. Executed alnu�eek, California. On this day of S tember, 200 ................................................................................ Signature West County Times P 0 Box 100 Pinole, CA 94564 (510) 262-2740 Proof of Publication of: (attached is a copy of the legal advertisement that published) NOTICE OF A PUBLIC HEARING You are hereby notified that on TUESDAY, SEP- TEMBER 26, 2006 at 1:30 p.m. in Room 107, McBri- en Administration Build- in Pine Street,Mar- tinez, California, the Board of Supervisors will consider a TEXT AMEND- MENT to the County Ordi- nance Code as described as follows: Inclusionary Housing Or- dinance(ZT060002): The Inclusionary Housing Ordinance (Ordinance) is a County initiated pro- posal to add Chapter 822- 4 to the County Ordi- nance Code to require new residential develop- ments to include a mini- mum percentage of dwelling units that are af- fordable to very-low,low- er,and moderate income households.In residential developments of five or more dwelling units, 15 percent of the dwelling units must be affordable. Developments of four or fewer units are not sub- ject to the requirements Of the recommended Or- dinance.The recommend- ed Ordinance provides some alternative compli- ance options for all af- fected developments in- cluding the payment of fees in lieu of develop- ment. The recommended Ordinance also estab- lishes rental and sale re- strictions on inclusionary units that are enforced by a recorded agreement be- tween the County and the developer. For purposes of compli- ance with the provisions of the California Environ- mental Quality Act (CEQA),A Negative Decla- ration of Environmental Significance (no Environ- . mental Impact Report re- quired) has been issued for this project. If you challenge the Proi- ect in court,you may be limited to raising only those issues you or someone else raised at the public hearir,q descri- bed in this notice, or in written correspondence delivered to the County at,or prior to,the public hearing. For further details, con- tact the Contra Costa County Community Devel- opment Department, 651 Pine Street,Martinez,Cal- ifornia, or Kara Douglas at 925-335-7223. Dennis M.Barry,AICP Community Development Director Legal CCT 6685 Publish September 20, 2006 PROOF OF PUBLICATION (2015.5 C.C.P.) STATE OF CALIFORNIA County of Contra Costa I am a citizen of the United States and a resident of the County aforesaid; I am over the age of eighteen years, and not a party to or interested in the above-entitled. matter. I am the Principal Legal Clerk of the Contra Costa Times, a newspaper of general circulation, printed and published at 2640 Shadelands Drive in the City of Walnut Creek, County of Contra Costa, 94598. And which newspaper has been adjudged a newspaper of general circulation by the Superior Court of the County of Contra Costa, State of California, under the date of October 22, 1934. Case Number 19764. The notice, of which the annexed is a printed copy (set in type not smaller than nonpareil), has been published in each regular and entire issue of said newspaper and not in any supplement thereof on the following dates, to-wit: Sept20, all in the year of 2006 1 certify (or declare) under penalty of perjury that the foregoin true and correct. Exec at Walnut eek, Califo On is 2 day S tember, 2rni .................................................................... ....... ... Signature Contra Costa Times P 0 Box 4147 Walnut Creek, CA 94596 (925) 935-2525 Proof of Publication of: (attached is a copy of the legal advertisement that published)