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Resolution 09527CITY OF ALAMEDA RESOLUTION NO. 9527 AMENDING THE GENERAL PLAN OF TIDE CITY OF ALAMEDA BY AMENDING THE INTRODUCTION AND SUMMARY AND HOUSING GOALS, POLICIES, ACTION PROGRAM SECTIONS OF THE HOUSING ELEMENT AND CERTIFYING REVIEW AND CONSIDEI2ATTON OF THE NEGATIVE DECLARATION FOR SAID AMENDMENTS WHEREAS, by its Resolution No 1980, the City adopted as its Housin ment entitled "Housing Element, City in accordance with Section 65302 and Code of California; and 9235, adop Element th of Alameda, following o ed February 12, certain docu November., 1979," the Government WHEREAS, there have been prepared amendments to said Housing Element to amend the INTRODUCTION AND SUMMARY and HOUSING GOALS, POLICIES, ACTION PROGRAM sections thereof, the same having been considered by the Planning Board;, which duly noticed and held public hearings thereon, and which-, on March 23, 1981, approved said amendments and recommended adoption thereof by the City, and WHEREAS, on April 13,.1981, said Board approved additions to expand the text and to add Target Objectives to the Action Program, and WHEREAS, on March 23, 1981, the Planning Board approved a Negative Declaration for the Proposed Amendments to the Housing Element as provided in Section 15083(3) of the California Environ- mental Quality Act Guidelines, and Nega WHEREAS, ve Declara e Council has rev on; and ewed and considered said WHEREAS, ora;April 28, 1981, the Council received said Board's recommendations, timid a public hearing on the questions of whether said amendments to the Housing Element 'conform to general law and whether their adoption would be in the public interest, heard testimony and took other evidence thereon, following which said Council considered the matter and was fully advised in the premises; NOW THEREFORE BE IT RESOLVED BY THE COUNCIL OF THE CITY OF ALAMEDA that said Council certifies that it has reviewed and considered the information contained in the Negative Declaration„ BE IT FURTHER RESOLVED that the City's General Plan be and hereby is amended by amending the INTRODUCTION AND SUMMARY and HOUSING GOALS, POLICIES, ACTION PROGRAM sections of the Housing Element as set forth in Exhibit "A" attached hereto. 4/28/81 CITY OF ALAMEDA HOUSING ELEMENT AMENDMENT APRIL 1981 To Amend February 1980 Housing Element Sections: Introduction and Summary and Housing Goals, Policies, Action Program INTRODUCTION AND SUMMARY The Housing Element of Alameda's General Plan is a statement of local housing needs, policies and program commitments. Goals, policies and program recommendations were developed in the Fall of 1979 by the Citizens Housing Element Advisory Committee, based on a review of past and current City policies in the areas of housing and land Use, on resource avavilability, and on assessment of housing assistance needs. In February 1980, the Housing Element, including these recommendations, was adopted by the City Council. Changes in Housing Goals, Policies, and Action Program are being recommended in January 1981 as part of the annual review of the Housing Element. No changes are recommended at this time in the Imp- lementation Strategies and People and Housing sections, pending re- ceipt of 1980 Census data in late 1981. Changes made are in response to two factors that have changed the Housing Element and housing program situation in Alameda since February 1980. First, the February 1980 Housing Element was found by the California Department of Housing and Community Development'to be inadequate under existing State legislation and second, the City has received Community Development Block Grant funds conditional upon commitment to develop housing affordable to lower income families. The Housing Element is a State mandated element of the General Plan. State Government code Section 65302(c) requires cities to pre- pare a housing element which "makes adequate provision for the housing needs of all economic segments of the community." Under current regu- lations, (State Housing Element Guidelines, Article 1, Section 6450) "adequate provision for the housing needs of all economic seg- ments of the community requires each city, through its housing element, to make a good faith, diligent effort to provide opportunities--for appropriate variety and choice of housing for all economic segments of the community, consistent with its identified need---such effort must emphasize the use of those public powers which impact on housing as well as he use of State and Federal housing programs." The, California Department of Housing and Community Development in their review of the February 1980 Housing Element, finds that "Alameda's adopted housing element identifies adequately the City's housing needs but fails to adequately demonstrate a good faith, diligent effort to use available resources to address these identified needs." (See attached letter from David Williamson to Bruce Rupp, City Manager, December 9, 1980) The current amendment is designed to show the specific commitment of the City to the Housing Action Program over the next five years. Secondly, the City has received Community Development Block Grant funds conditioned on commitment to develop housing units affordable to lower income people. Feasibility of various strategies to develop such housing is now being carefully studied and information froth these feasi- bility studies is incorporated in the Housing Action Program in order to be as close as possible to the economic as well as the political reality. Only those strategies which appear at this time to be Feasi- ble are included in the Action Program. The current market situation has changed the picture dramatically since the housing element was first prepared in 1975. Housing afforda- bility and displacement of people from their neighborhoods are now front page issues. It is clear that more and more people do not have their housing needs met by the private sector alone and that people with very low incomes are not served even by government programs. A conservative estimate of over 5000 lower income households, mainly renters, face problems of affordability or substandard condition. In addition, over 70% of the City's middle income families seeking homes to purchase were priced out of the market as of 1979 and no homes are being built affordable to middle income people. At the same time that needs are increasing, programs are set in a context of limitaticas. Alameda, as an old island City, has very little. land to develop new housing and housing resources are diminishing on the national and state levels as well. It is in light of the current situation that past policy statements are reviewed. Both State and Federal policy declare the provision of a decent home in a satisfying living environment for all to be a priority of the highest order. Alameda confirmed'this in its 1975 "Goals for Alameda" which states as the first housing goal that: "The quiet residential character of Alameda, with its mixed tenure housing available to people of most economic situations and all ages shall be preserved and encouraged. Alameda's primary concern should be the housing of its existing residents." Other goals from the 1975 Housing and Physical Plannin-g task force centered around the areas of preserving Alameda neighborhoods, the desire to stop high density development, to have more control over future development and improved communication with government. Concern was also expressed for people needing assistance with housing in the goal of providing a full range of housing services to residents'of the City. The concerns about the density have effectively been taken care of through a City ordinance implementing Measure A, passed in 1973, which limits new construction to duplexes or single family houses. Recently adopted policies contained in'Ah6 Combined Land Use Plan (CLUP) go a step further toward actually reducing densities on an attrition basis throughout the City: CLUP, noW City Policy, designates the entire residential area of the City, with the exception of existing apartment development, as single family or special single family districts. The ongoing concerns from 1975 and the issues of today have been incorporated in Housing goals and policies. The Housing Action Pro- gram is based on the current housing program and on the commitment that the City is making to pursue, with good faith and diligent effort, certain actions and strategies over the next five years. The current housing program of the City consists of three parallel efforts: one, assistance to lower income renters through the Section 8 existing program of the Alameda .Housing Authority; two, below market interest rehabilitation financing for lower income home owners and landlords through the City's Community Development program, and: three, the development of additional units affordable to lower income house- holds also through the City's Community Development program. During the 1970's, the Housing Authority has replaced the 330 units of temporary housing occupied in 1970, and.has increased the private rental supplement program from 225 to 378 occupied units. This Section 8 program remains the major source of aid for lower income renters in Alameda. The City's Action Program emphasizes an expanded.rental assistance program to the extent made possible by increased Federal ailocations to Alameda. The rehabilitation program has assisted 12 owners to obtain below market interest loans for rehabilitation of 24 housing units in the first full year of ope:ation. This effort is continuing with renewed funding from a Community Development Block Grant. The future of the rehabilitation program depends on the success of'the effort to develop additional housing and thus, the continuation of Community Development Block Grant funding or on developing local sources of funding for rehabilitation. The Community Development Program staff is in the process of evalu- atimT feasibility for developing additional affordable housing. It appears that the proposed strategy of converting commercial structures to housing is not promising at this time for economic reasons as well as because of structural design and neighborhood standards. The stra- tegy for development of new housing on scattered.sites throughput the City appears to be feasible at this time dependent on negotiations with owners and developers. Specific developable sites in residential areas have been identified on which the City will make every effort over the next few years to stimulate the development of housing. Three of these sites are owned by the City, with a total potential unit capacity of approximately 70 units. Two of these three, however, are not being considered for housing development by the City. These sites are not included in the Housing Action program target objectives. Two oth..,?r sizeable privately owned sites would accommodate a total of approxi- mately 112 units, and the remaining five small sites would hold a total of approximately 12 units. Success of the housing development program the key to continued Community Development Block Grant funding and, as such, the current key to continuation of the rehabilitation program. The following section spells out official policies and City commitment to a five'year action program in the area of housing. HOUSING GOALS, POLICIES, ACTION PROGRAM This chapter contains the crux of the Housing Element in Alameda. To the reader not familiar with Alameda, the following should make clear the context for which the goals, policies and programs were developed. Alameda is an old city on an island adjacent to Oakland in the San Francisco Bay. Residential areas are developed to a rela- tively high density. In 1973, The City Charter was amended to limit residential construction to duplexes and single family homes. Much of the remaining buildable land is slated for.expensive new housing, com- mercial, office and recreational uses. The following letter was written by Mayor Corica in July 1979. July 10, 1979 Nr, Lawrence B. Simons Assistant Secretary for Housing Department of Housing and Urban Development Washington, D.C. 20410 Dear Undersecretary Simons: Tt has been a month that you stated publicly at the U. S. Conference of Y,ayors in Pittsburgh that you would personally look into Alameda's problem with HUD. To date I have not received any information on this matter frorn your office. I personally gave you a sheet of paper which explained our position. In su.,Lnary this is ';hat it was meant to show. 1. The City of Alameda has adequat ely provided its share of _ subsidized housing in Alameda. 2. The City of Alameda, with Navy housing included, provides • 107, of its total housing stock to aid those in need of housing. A figure considerably higher than any City in the county. 3. Alameda has spent $2.5 million dollars from 1973 to 1976 of its own local funds to provide public housing for those in need. (1.‘lhen I asked the Assistant Secretary Bob Embry if he knew of any other city in the country that spent this amount of their own funds, he replied that he couldn't think of one.) 4. 1 explained to you that Alameda, being an island in San Francisco Bay, has a limited amount of lots on which to construct new low cost housing, but that we could very possibly provide the additional units through a rehabilita tion program where older homes would be upgraded and used for those in need. This would achieve the dual effect of upgrading the run-down homes and provide scattered housing throughout our city. Mr. Lawrence B. Simons -2- July 10, 1979 5. The voters of our island city fully realize the fact that Alameda has one of the most dense populations in the region (we have 75,000 people living on 2.8sq.mi: of residential land), which had a great deal to do with the rejection of a ballot measure to proceed with additional new construc- tion of low cost housing. They are also acutely aware that we are indeed doing more than our share to provide for those in need. These facts have been thoroughly discussed with our Area Office and your new Area Director, Mr. Henry Dishroom. They refuse to recognize or give credit for the great job we have done over the years, which leads me to state that in 1975 at the Boston Conference of llayors, I listened with great excitement when then Secretary Carla Hills stated that the Block Grant would be given to the cities and that the local govern:rlent would decide where it should be spent because they would know best their own particular problem. In 1979, at the Conference, I heard you state practically the same thing - that. HUD was there to help local governments implement their own programs. I believe HUD simply mouths statements like these, but in reality it's either do as HUD wants or get your funds cut off. I don't really believe HUD cares about local govern- ment. When local governments complain to our Area Office they are told that Federal Guidelines forbid them from being flexible© If this is indeed the case, I have a suggestion. Let's do away with the Area Office and its staff and deal directly with the Washington Office. The millions saved could be put to use in helping those in need. The Area Office recommended to you that the City of Alameda be punished for not providing additional units of new construction by taking away their 1978 funds. You complied without asking our side of the story, and thereby eliminated our program for senior citizens and the handicapped. 1 strongly feel that HUD is acting in a dictatorial and inconsiderate fashion. You are tiirning off the very sources that you say you are trying to help. I do not like writing you a letter like this, but 1 feel that you should be made aware of information that your Area Office may not have provided you Again, remember $2.5 million dollars of local funding was spent building new -6- Mr. Lawrence B. Simons July 10, 1979 construction which includes a 65-unit senior citizen housing project, our Esperanza public housing (120 units) and a new concept of, modular homes (40 units). Alaeda will break ground shortly'to provide an additional 50 units of new duplex construction for fLmilies of low income. I feel strongly that you should return the $1,047,000 you took away from us. Very truly yours, Chuck Corica. Mayor CJC:jf cc; President Jimmy Carter Senator Alan CrLnston Senator S. I. Hayakawa Congressman Pete Stark Assemblyman Elihu Harris Henry Dishroom, Area Director Even if the land the intention were pres to-build housing affordable to middle an lower income people, market factors and the severely limited government housing resources would make it impossible for the City to provide more than minimal assistance to those needing housing assistance. Inflation in land costs, overhead and profit in particular, in the context of a strong sellers market, erodes affordability far faster than program resources can mitigate these effects. It is within the context of. these limitations that the following goals, policies, and program actions are set. HOUSING GOALS AND POLICIES The recommended overall goal is a decent home in a suitable living environment for all Alamedans. Two major elements were identified in housing goal formulation: liveability and affordability. Under each, housing goals and policies are grouped into the following areas: Liveability Rehabilitation Goals and Policies • To conserve and rehabilitate the existing inventory of housing. • To eliminate conditions of overcrowding. • To correct unsafe conditions. • To correct unsanitary conditiOns. Neighborhood Goals and Policies • To maintain and improve the physical and social integrity of existing and future neighborhoods. • To give priority for public open space and other public improvements to neighborhoods determined to be deficient relative to the rest of the City. Affordability New Construction Goals and Policies • To provide incentives in order to encourage the construction of units affordable to lower and middle income households. . To add units to existing housing on scattered sites throughout the City and in underutilized commercial space. Home Ownership Opportunities Goals and Policies . To encourage opportunities for home ownership for lower and middle income renters and newly formed households. . To promote equity in financing throughout the City. • To allow condominium conversions in circumstances whiCh would increase ownership opportunities for middle income people without undue tenant displacement. • To permit condominium conversions as long as the ratio of owner-occupied units is 60% or less of the total number of dwelling units. Renter Goals and Policies • Permit conversions of apartments to condominiums when the developer, at the request of a Aenant, finds comparable rental housing within the City before displacing tenants. CITY HOUSING ACTION PROGRAM This section contains a listing of strategies and actions that the City is committed to follow in the next five years. These actions are intended to be sensitive to local needs and priorities as well as to economic feasibility and resource availabilitY: The -. effects on the program of the currently erratic houSing market, the high costs of construction, land and financing, cannot be foreseen with any degree of certainty. This local housing program consists of a three-pronged coordinated approach - rehabilitation and neighborhood preservation; assistance for would-be home purchasers and lower income renters; and a limited'amount of new and replacement construction. The prime emphasis is on the main- tenance and rehabilitation of, and the financial assistance with the existing housing inventory to meet the changing needs of-the City's families: An immediate effort in new construction is also a key portion of the local housing program. Two agencies within the City are responsible for administering various aspects of the program and carrying out policy set by the City Council. The Housing Authority .administers the Section 8 rental assistance program and is currently building 42 units of replacement public housing and planning for another 185 units of new rental housing for senior citizens. The Community Development Department administers the Rehabilitation Office, housing counseling services, the home owner- ship assistance program and development of new owner and renter units. This Department also develops financing programs such as housing bond sales, creative use of public-private financing, and applies for State and Federal housing program funds. Currently, there is a major effort to develop new rental units affordable to lower income households in order to supply some of the backlog of need for this income group. In addition to the 42 units of replacement public family housing and the proposed 185 units of senior citizen housing, a target goal of 79 new privately owned rental units is being packaged. Financing will be with a combination of private and public funds including Community Development Block Grant Funds. Inorder for these projects to be feasible, a variety of incen- tives are being offered to developers such as financial assistance with land and site improvements, waiving of City project fees, the reduction of parking and open s.pace requirements, some density in- creases, rapid processing of applications and below market rate financing. 0- In addition to Community Development funds, the use of local pension funds and of mortgage backed bonds is being explored by the ,Community Development Department. It is anticipated that these sources of financing will be used in the next few years for the development of additional rental units and for ownership units affordable to first time home buyers, as well as for rehabilitation and home owner- ship assistance programs. The Rehabilitation Program is currently funded at the level of 15 owner and rental units per year. Expansion to 25-30 units per year is anticipated in 1980-81 with CDBG funding and other sources of local, State and Federal financing which are being investigated and applied for as available. Section 8 existing rental assistance program will be expanded by a target of 30 added units per year depending on success of the renewed effort to enroll more landlords in the program, and on avail- ability of additional certificates from HUD. Landlords Who need assistance with rehabilitation are referred to the 'Rehabilitation Office. The Section 8 promotion is part of a package of housing coun- seling services being coordinated by the Community Development De- partment. The condominium conversion process has been revised as of July 1980. to provide for a tenant assistance package as part of the appli- cation process. This package is negotiated with the Planning Board to ensure proper procedures in notifying and working with tenants to purchase their unit or to find other housing. The process will be further strengthened by revising the ordinance to provide that de- velopers, on request of tenants who have been duly notified of assistance, will find comparable rental housing within the City before displacing tenants. The home ownership assistance program is aimed at first time home buyers and,in particular, at condominium tenants. State funds are being sought for this program. Additional funding is being explored from housing bonds, pension funds and private investors. In summary, the City is committed to full use of local powers to further the Housing Action Program, and is pursuing all available public and private resources for financing. CO CD 00 Cr) r-- Time Frame Program Funding 0 c4 0) I13 OZ PROGRAM AND C2) REHABILITATION AND NEIGHBORHOOD PRESERVAT CO r--. 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(1) , CO CD • r- S- 1.-^4 'n r- (1) (1) 01 C _0 0 ^ E o 1 . r- •r- r- 0 0 -0 • r- 1 r 0 ra Li_ • 01 1 >-) •r-- 0 0) -4-) (1) (CI V) O r-- 5- C 1 0 -9 00 0.. 3 a a a ca) s- en o 1.--) < .-3 CD ‹C (15 01:3 C0 (2 0 •r- • r- • 1- (1) C..) > -1-) (20 o V) (3 S- -Cl 0 • r- C 0- r-7. 0 0:) E• ,- -Y -k -) (5 en CD CD (5 S-- 0 (1) 0 CO 0 CO CO - M CD • r- CD CD C) 04- 5- (2 3(1) (2) (--) C.> 5.- C.) •-• 0 0. CT) -1-, -0 -7C r-- • r-- • r-- 0 C C 0 0 CO-0 C 01 C -1-, • r- r--- 0 (I) 4-, 1 4- 2Y-: 0 CD .-- 0 (1) CX) Cl) rcl C.) - Cr) 4- E S-- .... r-- r- n 4- 4-' Q5) 4-, •r- a -i--) 0, a u -1-, -1--, CI) 0 0 • >- - , (1) C I >; (4) C 0 -C 9- l ,-0 - -9 (1) 4- E C CI) (2 4-) E (3) C 0 -1-) (3 v) 0 r0 R •-CI0 0 OF E a a o • r- 4-, CI) C 0 L) •r- 4-, • r- -17-1 S- C C 0 -5 r C 5- 0 -0 S- 0 5- 0r- 0 :75 4-- O (4) (2(3 >,..-- E a) >, .--- crs a rcs - 4- E -.-) 4- E > 0 4-, 4- E > 4-) .- c r o 5- o O CO - (4) r- 4- 0 0) .7 CU ,-0 >- 0) >-)(5 4-, c_) m Cl C C) CD C) D C) CO 0. c3 :4_,4)0a,c5 0).e c> CD -0 (-) • 1- CCS 5- 0_ -C3 -I-) • r- S- E • -0 n 3 ii r0 0 -0 • ••• +3 0 -1--, 4-, V) CDS- 4-) E ti) •r- Li, -0 (1) S- -0 0 0 • CD- S.- >-, 0 (1) -0 4- V) 1/1 4-) >1 -0 0 C S- • r- -1.-) S- 0 CD r4 -, ri - - -1-, C 4-- 0 0- r () 0 C L C 0 • r- — C 0 (2 4-) 4- 0 (4) C 5- -- -C 0 0 0 () -0 C CU C3 4 (0 CT) E 0-) 0- 0- r- • r- r C r- (I) E a o o 0. 0 •- 0 -0 S.- 4-) > 0 5.- V) C • -1-, r 4- n u >, r- 0 r (C5 0 0 C 4-- 0/ CD •r- 4-> 4- 00 4 (n v) o F s-- _(2 4•,--• .000 0) 0 (3 (1) 4-:3 > c.n co cc) 0 0_ 0 (13 1-0 2c5): r-0 - -1--, (t) - -1-, 0 1/1 Q 0 s- E Q 4-, L/1 (5) o (2 V) < 11 Cf) r-I L1- C4 0. ,--4 -1-3 ti-) < 0 4- -(2 CT) 0 -0 0 C • r- r- • t- -4-) >a) (AU) (7) 1/) r 7..i . (II 0 CD 0 • r- .0 L.) r- 10.0 0) C1) U a 1 n in n -I-) C3) C) • r- , • r- lf) -0 1/1 (CS 0 U • r- -C: • r- 4-) 0 rrl 1./-) 0 in r: O 0 E 0 0) 4- • 0) _a E 0 • -0 r— (1) S- 1 -C 4-' 0 E a 5) 4-) -I-3 ITS C 4-) 00) U • r 0 0 ••- CU 0 0) r- 4-, C 433 (1) RS o>-- E _a -0 o (T) s- 3 0 a 0. rC3 (I) • •,+. •r- 0) CL) CD 0C3 C) -CD > (24-) C 4- ,- (1) CO r-- S- 0 0 (-) • r- -C rts E a u a) 0 s- •r- D (1)0 U 4--) C..) • r- c--- > 4- a-1-, -0 (1) 0 C CU (2 0) 4- E co CL) 0-0 0 0 a) 1--+ 0 5- = 3 co s- a • 1'- 0 (1) 4- a cu r CO >-, 4--) a E 00) E a 0 r--. .- 5- .-- 4-) - ry 0_01 4-, 0) CU 01 0- 0) 0 CD r-ia j '150 L'' r- 0 ro c S- r- r • . 4- 0 C -0 4- 4- C 0 4-- -1-, rCS r - I 11- r-- • r- C. 0r- C 0 > 0 (1) 4-) CCU) t.': Os- vE-'• • r- 4-) (A a) MS a 1/1 0 t-- 1 0)0 - 0 0 1 = ) 0 --) > '— '-- C 0 a) - ,._.._ Z< 2: (2 14- 4- (1) 00 •v) L/1 • r- V5 C) O 0 S- 0 -0 (/) :3E 0 4-) V) , 4-, +-'E --- en - o o a) 0 0 0 - in a 0 O .r n ,-.1- 0 CD) 7.:3 0 0 CO -1-) ,-- 0... V) 1 -I-, (2.2) rn o 0 >, 4- 4- c.- 7.= ---- 0 0 0 - 0 4- ,-- >, al a. a •r-- 4- -1-) r-- 4-, 4- 0_ 0 (3) 0 ‘,ZC 0) 01 (2 rC) (1) C) rC5 Cr) C S- 0 0)E 0 cu r- CD (4) 4-, E 0 rii •r- C • 1- 4 -, -CJ 0013 - > 0 C -r----. . : C 0 0 05- • t- 0 0 -• r- W r- S... 3 0 0 (r) --0 0 0 EZ-: 0 > -0 0 a(2) 0 s_ 0 0 Lc) s- •— 4-1 a E u 10 u•) en 0 5- _= •>,- to) a E C...) -,:j 4--) (LI 4- al 4- -C. •-- Li- n 0 > 0 r=, 5- 0 S- 0 0 0- (0 (1) 0 (/) 0 0 (1) 4-- 0 0 CI) 0 • 1- (ll 5- n o s- a E (5) a.) >•, E.' :D U > > 0O (2) S- (2 V) CL 0 0_ LE CL LU •r- 4-) (1 -0 ‹... LU C • LC) • Housing ElementUpdante The liousing Element will be updated annually based on program changes and on new information for needs analysis from the U. S. Census Bureau and other sources as available. .A complete revision will be made by June 30, 1984. I, the undersigned, hereby certify that the foregoing Resolution was duly and regularly adopted and passed by the Council of the City of Alameda in regular adjourned meeting assembled on the 28th of April, 1981, by the following vote, to wit: AYES: Councilmen Diament, Sherratt, Stone, Tillman and President Corica - 5. NOES: None. ABSENT: None. IN WITNESS WHEREOF, I have hereunto set my hand and affixed the official seal of said City this 29th day of April, 1981: City C erk of the City ,if'Alameda