Loading...
HomeMy WebLinkAbout85-22 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 RESOLUTION NO. 85-22 RESOLUTION OF THE CITY COUNCIL OF THE CITY OF UKIAH ADOPTING GENERAL PLAN AMENDMENT 1984-AA, HOUSING ELEMENT CHANGES WHEREAS, the Planning Commission conducted public hearings on May 9 and 23, and June 13 and 27, 1984 at which time the Land Use area "Talmage Road North" and documentation changes to the Housing Element, comprising General Plan Amendment 1984-AA, were considered and recommended for action to the City Council, and WHEREAS, the City Council has held public hearings on July 18 and August 15, 1984 and found the Housing Element documentation changes to be consistent with the goals, policies and objectives of the General Plan, and WHEREAS, the City Council has found the Negative Declaration for this portion of the General Plan Amendment adequate and complete. NOW, THEREFORE, BE IT RESOLVED that the City Council of the City of Ukiah adopts General Plan Amendment 1984-AA modifying the General Plan as follows: Changing the Housing Element to read as attached Exhibit A. PASSED AND ADOPTED this 15th day of August, 1984 by the following roll call vote: AYES: Councilmembers Henderson, Kier and Hickey NOES: Mayor Myers ABSENT: Councilmember Kelley t-' . MAYOR ATTEST C ITI~'CLERK HOUSING PERSPECTIVE AND PREVIOUS ACTIONS RELATIVE TO HOUSING The City supports and actively participates in many programs related to housing though not itself becoming the prime agency. Because of the limited staff and the belief that additional layers of government should not be created to implement housing, the City has depended on various community agencies for the actual implementation and administration of appropriate housing programs. It has been, and continues to be, the City of Ukiah's position that the specific provision of housing is the responsibility of the private sector and organizations established for that sole purpose. In 1979, in cooperation with the Mendocino County Community Development Commission and Housing Authority (CDC), a $110,000 Federal Housing and Urban Development (HUD) grant for housing rehabilitation was received. These funds were utilized to rehab 22 units in the "Waggonseller's Addition", a development built around the turn of the century. The following year the City applied for, again in cooperation with the Housing Authority, a grant to provide drainage and street improvements in that same area. This application was not awarded by HUD because the necessary improvement costs exceeded available funds. In 1984, again in conjunction with CDC, the City applied for $360,000 CDBG Rehabilitation Funds. 30 units were proposed for this project. The same grant also included $35,000 for Bonita House, a mentally handicapped center. This grant was not awarded to the City. Prior to receipt of the 1979 rehabilitation grant, the City had applied for two other similar grants, but was unsuccessful. The City is not Urban Development Action Grant (UDAG) eligible. The City is concentrating efforts toward job creation so individuals can upgrade their housing themselves, in addition to government subsidy assistance programs of other agencies. The City has approved specific projects for targeted groups constructed by both local and out of town developers. A 48 unit senior citizens housing complex on North Bush Street was built in 1978 by Rural Commu- nities Housing Development Corporation (RCHDC). This was accommodated by rezoning the property from R-1 to R-2. RCHDC has also completed another 44 units of senior citizen housing and 40 family units on Waugh Lane. A General Plan Amendment changing the property from Medium Low to Medium High Density was approved to allow these projects. In 1978 and 1979, the City approved three different Farmer's Home Administration projects totalling 66 "for sale" townhomes and 112 apartment units by Hunt Construction of Sacramento. Planned Development (PD) zoning was instrumental in allowing the site design necessary to develop these units. In 1983, Rooftree, Inc., of Rockton, Illinois completed 38 Farmer's Home Administration RRH 515 multi-family rental umits. This was accommodated with a density bonus approved pursuant to State statute. These projects alone have accounted for 60.4% of the total number of new units built within the City since April 1978. Table A illustrates the housing activity since 1970 with senior citizen and low and moderate income projects specifically identified. The City has not placed special standards upon housing program developers, nor set aside specific sites for assisted housing. The areas already developed though were completed with City rezonings, relaxation of zoning require- ments and site development approvals. Manufactured housing is also allowed in any residential zone of the City. The City has additionally, where property was purchased for the exten- sion of Main Street and for airport clear zone, offered any living units on the sites for sale at very minimal costs with moving of the structure the responsibility of the purchaser. These buildings have not generated much interest from individuals or agencies. As further support for the provision of low and moderate income housing, the voters of the City in the June 1982 election, by a 1,006 vote margin (64.9% yes vote), approved 100 Article 34 units. This is seen as a very positive indication of the community's commitment to housing for ali economic levels. It should be noted also that in the 1981 comprehensive General Plan amendment approximately 160 acres were redesignated to Medium High and High Density for a total allowed increase in housing units at build out of between 1378 and 2436. The 160 acres are not necessarily available vacant acreage, but the number reflects the change in total potential land use capacities. A recent survey by the League of California Cities, indicates that statewide housing approvals by local governments, between 1979 and 1981 were approximately 516,000, while the actual construction was only 116,000. Just within the City of Ukiah since January 1980, approvals have been granted for 415 units which have not yet been commenced. The study and City experience reveal that it is not the decision making bodies that are holding down the new housing stock, but economics. Local governments with limited resources, which are being further depleted by State and Federal actions, cannot provide the sole solutions to housing issues. TABLE A CITY OF UKIAH HOUSING UNIT CONSTRUCTION ACTIVITY (BASED UPON ISSUED BUILDING PERMITS) Year Single Family Multiple Units Total Senior Citizens & Low/Moderate Income (SCLMI) 1970 28 10 38 0 1971 25 16 41 0 1972 30 69 99 0 1973 70 112 182 0 1974 15 22 37 0 1975 26 188 214 9 1976 41 58 99 0 1977 21 65 86 0 1978 22 247 269 112 1979 16 26 42 0 1980 80 64 144 116 1981 7 4 11 0 1982 6 50 56 50 TOTALS 387 931 1318 287 SENIOR CITIZENS AND LOW/MODERATE INCOME (SCLMI) UNITS Since 1978 Single Family Multiple Family Total Units constructed: SCLMI units: % SCLMI of total Total 131 391 522 68 210 278 51.9 53.7 53.2 The percentages for 1980 and 1982 greatly exceed the 50% average, being 80.6% and 89.3% respectively. Government constraints have been pointed out as key issues in housing production. It should be noted that Councils and Boards respond to the expressions of the populace. Those areas which are generally seen as constraints to housing, i.e., park and recreation dedication requirement, infrastructure placement, school replacement because of overcrowding, general aesthetic improvements and "delays" in processing through public hearings and interested party input are matters deemed necessary by the community and therefore implemented by the Council. It is not a government constraint so much as a community demand to be in control of development within the juris- diction. The Commission and Council have revised the Zoning Ordinance lessening several development requirements. Though these help decrease spiraling costs, they are not the significant factors in the housing situation. In 1983, the City adopted an ordinance allowing second units on R-1 zoned lots. Minimum lot size remains the standard 6,000 square feet, with minimal other criteria to insure compatibility with the adjacent properties. The City also views expansion of housing opportunities in the form of annexation. In 1979, a 701 Planning Grant was received and a study completed which provided an annexation policy within the sphere of influence. The Council approved the "Westside Strategy" wherein the future City expansions should be west of the freeway both north and south of the City. The vast majority of available land for potential development and existing suburban development is found here. Since 1979 the City has annexed more than 350 acres, approximately 30 acres of which remain vacant residential. Some areas have already been developed with more than 180 Farmer's Home Administration sale and rental units and 55 acres has received Planned Development approval for 348 residen- tial units of mixed types. The later project includes 32 units which must be affordable for low and moderate income persons. The process of this General Plan Amendment has included four public hearings (two each) by both the Planning Commission and the City Council during which considerable opportunity was provided for input from all sectors of the community. During the comprehensive amendment in 1981 over 25 different public hearings were considered, with four of those specifically designated for the Housing Element. Further, the City is represented on the County of Mendocino Housing Task Force and has attempted to coordinate the issues and responses from the County's General Plan to its General Plan to provide consistent application of housing programs throughout the City sphere of influence and participate equitably in the regional housing issue. Discrimination in housing practices has been a major issue discussed at all governmental levels. During the Amendment process in 1981, much concern was expressed that non-discrimination documentation should be written into the City General Plan. The City Council opted to depend on the Federal and State mandates regarding discrimination, and simply stated this General Plan does not contain discriminatory actions, nor is it inconsistent with State laws. However, issues, not specifically addressed in the State and Federal Laws, shall be reviewed to determine if local mitigation measures are necessary. The City recognizes and supports those agencies charged with implementa- tion of discrimination regulations. The City will maintain appropriate data regarding these agencies and provide referral services to Redwood Legal Assistance, Mendocino County District Attorney, and Fair Employ- ment Practices Commission for those people requesting this information. Condominium conversions is not viewed as a significant issue within the City. In the past seven years there have only been three conversion applications of existing apartment complexes. One was denied because the physical condominium standards, another has just been applied for and one is presently being processed with initial Planning Commission approval. The housing need in the area is for both rental and owner housing. Conversion of existing apartments will allow lower cost ownership units. The converted units would undoubtedly be from the higher rent apartments since the cost of upgrading to meet condo stan- dards would not be economically feasible for the low rent complexes. The following portions of the Housing Element assess existing and projected needs, programs and effort. Again though, the basis for these programs and the intent of the City is to insure that appropriate housing is provided through fully utilizing existing available re- sources. The time frame for this element is 1983 to 1990. Pursuant to State law, it has been developed in response to comments by the California Housing and Community Development Department and State requirements for Element compliance by July 1984. The key General Plan consistency question is with the land use element which will provide the appropriate sites for development. As noted earlier the previous amendment changed many area designations. HOUSING NEEDS, SITES AND CONSTRAINTS While the population of the City of Ukiah increased by 26.04% between 1970 and 1983, the housing stock grew 48.2%, a total of 1,690 units. (See Table B). The types of units are indicated in Table C which demonstrates a significant change in the density make up of the communi- ty. In 1970 more than 80% of the housing units were single family, with apartments and mobile homes being relatively equal. By 1983 single family units dropped to 64% with duplexes, triplexes and fourplexes doubling and large complexes almost tripling; mobile homes remained approximately the same. This same trend was exhibited in the County, though mobile homes, increased significantly. TABLE B POPULATION --1960 (U.S. Bureau of the Census): 9,990 --1970 (U.S. Bureau of the Census): 10,096 --1974 (Department of Finance, Special Census): 10,606 --1980 (U.S. Bureau of the Census): 12,035 --1983 (Dept. of Finance, Annual Estimate): 12,725 HOUSING UNITS & HOUSEHOLD SIZE --1969: 3426 units - 3.05 persons/household --1970: 3505 unJ~ts - 2.88 persons/household --1974: 3960 units - 2.69 persons/household --1980: 4871 units - 2.48 persons/household --1983: 5195 Units - 2.50 persons/household TABLE C: COMPARISON OF YEAR ROUND HOUSING TYPES IN UKIAH AND MENDOCINO COUNTY: 1970 AND 1983 1970 1983 City County City County Housing Type % No. % No. % No. % No. Single Family 80.4 2845 83.0 15699 64.4 3345 65.7 20277 2 - 4 Units 5.5 195 4.3 813 10.3 535 9.2 2842 5 or More Units 6.9 244 4.3 813 17.6 917 10.3 3195 Mobile Home 7.2 255 8.4 1589 7.7 398 14.8 4561 5195 30,875 TOTAL 3539 18914 5195 30875 According to the 1980 National Census there were a total of 164 occupied housing units which were considered to be overcrowded; i.e., a unit in which more than one person occupies a room. This was broken down to 1.01 to 1.5 persons per room in 120 units and 1.5 or more persons per room in 44 units. The total number of persons involved in housing of this type was 947. 153 units had 6 or more persons in them. This is 3.4% of the housing units and 7.9% of the population. When compared to 1970 socio-economic census data, the situation has improved; since there were 227 or 6.6% overcrowded units within the City then. Mendocino Council of Government (MCOG) predictions indicate an increase of 644 units is necessary to accommodate growth anticipated to 1990 (January 1983 as the base). During 1983 and in the first month of 1984, 92 units have been constructed; 78 of them are specifically designated for low/moderate income (LMI) persons. Four agencies which have provided targeted housing in the past were surveyed to indicate proposed construction activity over the next seven years. These are: Rural Communities Housing Development Corporation (RCHDC) - 10 HUD self help units, currently designed and approved in Las Casas- to be completed in 1984. Rooftree Inc., - 38 Farmer's Home Rural Rental Housing 515 - to be completed in 1984. Mendocino County Housing Authority/Community Development Commission - No specific commitments; Do not know what programs will be available. Hunt Construction - No specific commitments The Las Casas developer, through a density bonus provision accepted by the City, must also provide 22 units to persons meeting low and moderate income standards. Thus, a total of 148 low and moderate income units have been committed to meet the demand of 399 units projected by the Department of Finance as needed to be added by 1990. Utilizing the most recent County Assistance Plan data, the special needs for the handicapped, elderly, large families and female headed house- holds were calculated. The plan indicated that of all lower income households in need of assistance, 31% were elderly or handicapped, 53% were female headed and 16% were large families. The number of very low and other lower households within the City in 1983 totalled 2031. Thus, the estimate of current needs by category is: Household Type Number of Units Elderly or handicapped 630 Female head 1076 Large family 325 TABLE D: HOUSING CONDITIONS, CITY OF UKIAH, JUNE 1979 Data from housing survey conducted by consultant Enum. Sound Needs Dist. Minor Number Imprv. Needs Beyond Under Unde- Unable Total Major Repair Const. velop- to Imprv. ed Survey 39 99 22 1 0 0 0 1 123 percent 80% 18% 1% 0 0 0 1% 40 136 154 50 13 0 0 1 355 percent 38% 43% 14% 4% 0 .5% .5% 41 324 10 0 0 0 0 0 334 percent 97% 3% 0 0 0 0 0 42 287 85 27 2 2 3 18 424 percent 68% 20% 6% .5% .5% 1% 4% 43 206 108 38 1 0 3 6 362 percent 57% 30% 11% .5% 0 1% 2% 44 536 449 37 2 0 0 0 1024 percent 52% 44% 4% .5% 0 0 0 45 354 133 37 3 1 0 0 528 percent 67% 25% 7% .5% .5% 0 0 46 20 10 4 1 0 0 0 35 percent 57% 29% 11% 3% 0 0 0 47 146 83 28 3 0 2 0 262 percent 56% 32% 11% 1% 0 1% 0 48 231 151 29 1 0 1 16 429 percent 54% 35% 7% .5% 0 .5% 4% 49 459 61 9 1 0 1 5 536 percent 86% 11% 2% .5% 0 .5% 1% TOTAL 2978 1266 260 27 3 11 .17 4412 PERCENT 63.4% 28.7% 5.9% 0.6% 0.1% 0.2% 1.1% The quality of housing within the City is quite good. The number of housing units which lack complete plumbing is only 24 (1980 census); less than .5% of the units in the City. In a survey completed in 1979, (see Table D) by a consultant for the City, it was determined that approximately .6% of the total units within the City were beyond repair, with 260 available for rehab. The City has, through a Federal rehab grant, assisted 22 units in the Wagonseller's Addition, located within the enumeration district having the greatest need. During the early stages of the rehabilitation program, it was very difficult to garner home owners and renters to participation in the program because of the uncertainties relative to it. After a considerable outreach program the funds were expended, however. The measured vacancy rate continues to be higher than "perceived" in the community area, thereby providing opportunities to meet various housing housing needs. The 1980 rate according to the U.S. Census was 4.2% (203 units) while 1983 rate was 4.68% (243 units) according to DOF estimates. AFFORDABILITY The census data indicates that the median value for owner-occupied units in 1980 was $67,300 and median contract rent was $230. In 1970 the median value for owner-occupied units was between $15,000 and $20,000, with median monthly rent of $80 to $100. It is obvious to see that costs for both owner and renter occupied units substantially increased during that 10 year period (236.5% for owner). As has been the case throughout the country, the private construction industry has not been able to meet the housing demands for affordable housing within the City of Ukiah. The median income in 1970, for all families, was $8,271 which produced a purchasing power (2.5 times yearly income) of $20,678, above the average value of owner occupied units at $17,500. The average family income (2.5 persons per family) for 1981, average of all joint returns, was $11,440, which provided a purchasing power (2.5 times yearly income) of $28,600, less than 43% of an average home purchase price of $63,700. The Community Development Commission of Mendocino County currently operates HUD Section 8 Existing and Section 8 Moderate Rehabilitation Programs within the City of Ukiah. Section 8 HUD standards for income eligibility as administered by the County Housing Authority as of February 1984 are: Family size/ Income limits 1 2 3 4 5 6 7 Very low Other lower 12,900 Moderate 19,300 Not Available 14,700 16,550 18,400 19,550 20,700 21,850 23,000 22,100 24,850 27,600 29,350 31,050 32,800 34,500 10 HUD'S Section 8 Fair Market Rental Rates are: 0 Bedrooms: $267 1 Bedrooms: $334 2 Bedrooms: $408 3 Bedrooms: $546 4 Bedrooms: $597 The Farmer's Home Administration (FMHA) has extended loan approval authority for the City of Ukiah even though the City has exceeded the 10,000 maximum population threshold. It is uncertain how much longer the City will be eligible for FMHA Loan Programs. The FHA Section 515 and 502 Loan Programs have been utilized in the City construct housing for low to moderate income households. There has been very little contractor built Section 502 single family housi activity in recent years due to the high cost of building in the area. RCHDC is currently planning to build 10 single family homes utilizing 502 loans under their Self-Help program. Recent changes in the 502 loans eligibility guidelines may have an adverse on the ability of RCHDC to utilize this program. The current change mandates that 40% of all 502 loans be granted to families in the very-low income category as defined by HUD. All applicants in the low income category must have adjusted incomes of $18,00 year or lower to qualify for this program. RCHDC will need help in seeking land write down and fee waivers in order to bring the Self Help housing cost within the repayment ability of very-low income applicants. If RCHDC is unable to make 40% of their proposed units available to very-low income applicants they will be unable to utilize the 502 program in Ukiah. The 502 loan program is the only program available in Ukiah which would enable very-low and low income families to purchase single family homes. Due to the rapid acceleration of housing costs, many financial institutions and commercial money lenders have developed ceilings for determining the amount of family income to be spent on housing. A generally used rule puts a limit of 30% of gross monthly income for mortgage payments. If the buyer does not have any other long term (six months or more) monthly payments the bank may allow up to 35% of the income for a mortgage payment. With the current housing market asking well above the $63,700 value found in the 1980 census, it is obvious that the average City resident is priced out of the buying market. This is even true for joint wage earners (average 1980 per capita income was $6,921) at the 35% figure. Young families and first time purchasers are extremely limited in their opportunity to purchase houses within the City. This is, of course, no different from Mendocino County nor most of the remainder of California. Tables E and F document 1983 housing costs, which actually decreased from 1982 levels. 11 TABLE E. TYPICAL RENTAL RATES, 19823 Houses Apartments 1 Bedroom N.A. 0 Bedroom 210 2 " 390 1 " 260 3 " 425 2 " 305 4 " 500 3 " N.A. As of March 31, 1984, there were 181 rental units assisted under the Section 8 Existing Housing Program in Ukiah. Of these, 59 were elderly, disabled or handicapped, and 122 were families. As of the same date, there were 324 eligible applicants for Section 8 Rental Assistance in the City of Ukiah. Of these, 46 were elderly, disabled or handicapped, and 278 were families. Based on the total County figures, 70% of families eligible for Section 8 assistance are female-headed households. Using 1983 D.O.F. household figures for Ukiah, 14% of Ukiah renter households are on the Section 8 waiting list. TABLE F AVERAGE PURCHASE PRICE FOR HOUSING IN MENDOCINO COUNTY (NOT RESTRICTED TO NEW CONSTRUCTED) SOURCE: MENDOCINO COUNTY BOARD OF REALTORS MULTIPLE LISTING SERVICE 1976 1977 1978 1979 1981 1982 1983 Single Family Dwelling 1 Bedroom N/A $ 16,750 2 Bedroom $ 24,086 $ 36,370 3 Bedroom $ 33,156 $ 47,946 4 Bedroom $ 48,750 $ 61,300 1 Bedroom 2 Bedroom 3 Bedroom N/A $ 26,250 N/A N/A N/A $ 46,625 $ 53,112 $ 59,800 $ 65,516 $56,833 $ 58,887 $ 66,458 $ 87,783 $ 81,621 $ 77,06¢ N/A $ 73, 650 $ 98,750 $103,311 $ 89,642 Mobile Homes N/A N/A $ 6,800 N/A N/A N/A N/A N/A N/A $ 11,833 $ 28,083 N/A N/A N/A $ 27,500 N/A $ 24,500 $ 40,875 N/A N/A N/A Based upon the Mendocino County Housing Needs Plan adopted by the Mendocino Council of Governments (MCOG) in December 1983 the income groups within the City are: 26% very low, 15% other lower; 21% moderate, and 38% above moderate. The total number of 1983 households within each category are tabulated in Table G. 12 TABLE G HOUSEHOLD INCOME DISTRIBUTION - 1983 Number Category of Households Percent Definition - % of Median Income for County Very low 1288 26 Below 50% Other lower 743 15 51-80% Moderate 1040 21 81-120% Above Moderate 1881 38 Above 120% TOTAL 4952 100 The same needs plan utilized State Department of Finance projections and established the requirements for 1990. The actual increases in number of households per income group and the 1990 percentages are: very low: 10, 23%; other lower: 160, 16%; Moderate: 258, 23% and above moderate: 265, 38%. Total households in 1990 is estimated to be 5,645. INCOME GROUP TABLE H HOUSEHOLD PROJECTIONS FOR 1990 HOUSEHOLDS PERCENTAGE Very Low 1,298 23 Other lower 903 16 Moderate 1,298 23 Above moderate 2,146 38 TOTAL 5,645 10--~ Special needs groups within the City include the low and moderate income, elderly, handicapped and female head of household. The low and moderate income and senior citizens have been addressed by most of the subsidy housing developed in the City. Large families and farm workers are groups for which detailed information is relatively unknown. The 1980 census indicates all housing is termed "Inside urbanized areas." Fur- ther, the City does not encompass large agricultural tracks which would provide on-site migratory or farmworker housing. The large family situation can only be speculated at by the statistic that 153 units had six or more persons per unit in 1980. The handicap issue is one being addressed through building codes of which the City has adopted the 1979 edition. The city remains current on the applicable regulations and continues to update the requirements. Again, the agencies most suited for the issues will be supported in their efforts toward solutions. 13 EMERGENCY HOUSING The Need* The need for emergency housing encompasses a large range of situations. Families otherwise able to provide themselves with adequate housing are suddenly and unexpectedly faced with the need for emergency shelter as a result of fire or family break-up. Other families only marginally able to meet their housing needs are left without shelter when their present housing is sold, when a s~ared housing arrangement breaks down, from an inability to pay rent, or a number of similar reasons. Finally, there is a transient population, composed of both families and individuals, that has emergency shelter needs. The need for emergency shelter is by its very nature difficult to assess. The results of a survey completed in May 1980 by the Emergency Housing and Special Housing Problems Subcommittee of the County Housing Task Force showed the combined estimate for the number of persons in need of emergency housing in a year's time, countywide, as approximately 1500. The breakdown between individuals and persons in families was about 900 individuals and 600 persons in families. The County average of 3 persons per family, would indicate approximately 185 families per year face this need. The survey also showed that the three most cited problems related to securing emergency housing were small children, health problems or handicaps, and lack of funds. Lack of money and lack of available emergency housing were cited over 800 times each. The number of local residents in need totaled 1000, while transients account for the remain- der. The proportion of this need within the City of Ukiah is not precisely known. However, it might be considered greater than the population percentage comparison between the City and the County because of the location of a major transient corridor and the concentrated, more urban nature, of the locale. The strict population percentage factor (17.4% of County population withinin the City) would indicate an annual need in excess of 260 cases. *This information was provided by the Mendocino County Housing Task Force. Resources Agencies attempting to deal with emergency housing problems find that while their resources remain static, the availability of emergency housing declines and the demand for this service is on the increase. Non-Governmental groups such as the Emergency Action Team and the Ministerial Association find that they simple run out of funds. Even when a person in need is eligible for it, the County's General Relief (GR) Program is often unable to solve the problem because of the unavailability of space in the few motels which will accept County vouchers. Families on public assistance, ineligible for General Relief or supplemental funding, cannot cover the extra expense of renting motel rooms, even when units for families are available. 14 Many marginal housing units, which had been used in the past as de-facto emergency housing units are being converted to permanent housing or have been torn down. The rehabilitation of the Palace Hotel alone removed 65 low cost units from the temporary housing market. The pressure to find permanent housing has in effect eliminated the temporary housing that was available in the past. Finally, the emergency housing situation becomes even more difficult as more motels refuse to accept County General Relief Vouchers and Ministerial Association Chits. Guest House has been established as an emergency shelter; however, it has very limited capacity and cannot assist the major unmet need in emergency shelter which is for families. The solution to the problem of insufficient emergency shelter facilities will come only as a result of a community wide effort involving government, private agencies and such organizations as the Emergency Action Team, the Ministerial Association and local churches. A possibility that may be pursued is the development of a Rescue Mission in Ukiah. Based on a well tested and proven approach, churches in Ukiah area can learn from the experience of other Missions. This approach is healthy in that it draws its support and direction from the community. Rescue Missions do not rely on governmental funding, in fact, their religious nature means they cannot receive tax monies. Because their types of facilities are generally oriented toward individuals, unmet family needs may not be addressed by this program. The current emergency shelter services in the Ukiah area are provided by: Ukiah Community Center (UCC) - Federal assistance (soon to be depleted) UCC & Alcohol Rehabilitation Center (ARC) - Guest House Ministerial Association Salvation Army During the 12 month period from May 1983 through April 1984 the number of shelter bed days were: UCC (Federal Emergency Management Act) - 144+ UCC (other) - 4400+ Guest House - 1200+ Proposed facilities and/or programs for emergency facilities include: UCC/Guest House - New facility on Luce Street for family mission - single men Business Mens Group/Two family unit UCC - Bonita House/SSI, Six permit unit Santa Rosa Rescue Mission 15 SITE AVAILABILITY Projects with 415 units, including condominiums, single family, duplexes and multiple family, have been approved, but not yet been constructed. These are: Number of Units and Unit Approval Project Density Zoning Type Type Comment Park West Wabash So. Oak Bush/Cooper Las Casas Jones-Low Gap 25 i/AC PD Condo Final Map 10 15/AC R-3 Condo Use Per. 10 23/AC C-1 Condo UP & Map 4 8/AC R-2 Condo Use Per. 348 7/AC PD Subdv. UP & Map 18 15/AC R-2 Apart. Site Dev. Above Mod. Income Attached Units Attached Units Indiv. Structures SFD, Dup, Apt. Attached Units Not included are the miscellaneous individual lot development which may occur. Based upon previous average annual figures of 100 units, this number would account for approximately four years of housing absorption. Further, there currently exists the following vacant acreages of res- identially general planned and zoned land with the potential for devel- opment. Utility mains and urban services are available for developer connections. These figures are only for property within the corporate City limits. Considerable land is available in adjacent county areas both north and south of the City. TABLE I VACANT, NOT COMMITTED, LAND FEBRUARY, 1984 Zone R-i:H-4 R-i:H-2 Maximum Density Gen. Plan Net Potential Per Acre Design Acreage Lots Units 1 Hillside 22 N/A 22 4 Low Den. 4 N/A 16 R-1 R-2 R-3 PD Total 7 14 28 14 28 Med. Low. 28 52 248 Med. High 4 6 70 High Den. 5 N/A 140 Med. High 13 N/A 182 High Den. 9 N/A 252 930 16 The 286 potential units in the R-i:H-4, R-i:H-2 and R-1 zones would likely be only affordable to above moderate income levels with the 38 hillside imots being very expensive to develop. The remaining 644 potential units could be afforded by other lower and moderate families depending on the specific project or avail- able program. The rate at which housing is produced in these areas is strictly a function of the market place. Though residential use is allowed in the C-1 zone, vacant commercial property has not been tabulated because of the uncertainty of such uses. Redevelopment potential is seen as low because of the economic situation and remaining available vacant land. Government is viewed as a constraint in all forms of development. When the private sector is unable to produce the demanded commodity at a viable price or at the terms predetermined to be appropriate, government constraints are viewed as the cause. Within the City of Ukiah residential proposals have run the gamit from 30 day approvals to year long "battles". These depend on the complexities of the development issues and the perceived impacts within the neighborhood. Beyond these project specific concerns, the Council has tried to view regulations from a rationale perspective and determine those standards necessary to preserve the life style standards appropriate to Ukiah and eliminate the superfluous. During the recent review of the Zoning Ordinance many changes were made. These include elimination of required covered off-street parking (savings of approximately $6,000 per unit), reduction of the front setback from 20 feet to 10 feet, elimination of the maximum percentage of lot overage and greater flexibil- ity in lot splits and condominium provisions for existing units. Where possible the Council has relaxed standards which thus increasing opportunities for afford- able housing while not compromising health and safety requirements. Because of the urban nature of the City and the significant effects such minimal standards would have within the City, Class K provisions cannot be allowed. Some development development provisions in the City may, however, be viewed as con- straints to development and are thus analyzed here. The City's residential zoning allows densities ranging from I unit per acre (R-i-H-4) to 28 units per acre (R-3). Projects providing targeted units have primarily utilized R-2, R-3 and PD zoning. PD zoning requires development to occur at the density specified in the General Plan. As noted in the Land Use element that ranges is one to 28 units per acre. Just discussed in the last paragraph, several land use control issues have been eliminated. Presently the zoning does require a 20 foot setback for garages, five feet side setbacks and 15 and 10 foot rear setbacks. Height limits are 30 feet (2 story capability) in the R-1 and R-2 zones with a 40 foot limit in R-3. Minimum parcel sizes for each zone is 6,000 square feet with corner lots 7,000 square feet. Existing parcels to 4500 and less square feet may be developed with a Site Development Permit (6,000-4,4,500) or a Use Permit (less than 4,500). New developments proposing smaller than 6,000 square foot lots, variation in setbacks or other design modifications can be accommodated through the Planned Development zone. The City uses the Uniform Building Code for its construction requirements. Though the 1979 edition is currently utilized, the 1982 edition is to be adopted immediately after State authorization. Enforcement of the code is strict. The City is preparing a survey of historic and architectually significant structures which will allow use of the State Historic Building code for rehabilitation. 17 Site improvements required include curb, gutter, sidewalks and street paving where necessary and complete utility connections by the property owners. Hookup fees and capital improvement fees for each unit are required, with payment necessary prior to use and occupancy. The utility fees and changes for typical residential development are: Fees or Charges Water Sewer Electricity Capital Capital Capital Type of Unit Improvement Connection Improvement Connection Improvement Connection Single Family 660 At Cost 500 10 *625 150 Detached Duplex 660 At Cost 1,100 20 *625 250 Fourplex 1,100 At Cost 2,200 40 *625 500 Ten unit Apartment Complex 3,520 At Cost 5,500 100 925 1,000 *Depending upon the project location this charge may be less if a transformer is not necessary. The City Council has greatly scrutinized these fees and has determined they are necessary for operation, maintenance, upgrading and replacement of the specific systems. Reduction, waiver or other modifications to the changes are not considered. It must be noted that the rates for services are lower than those of adjacent utility providers and thus long term costs to residents lower in the City. Electric rates are approximately 5% less than P.G.& E., and the City's water rates are less than ½ those of Millview County Water District to the north of the City. Consistent with the Community Facilities Element residential development is required to provide parkland/open space or pay in-lieu fees pursuant to the Quimby Act. The requirement is 5 acres/1000 population. Private open space/reservation facilities may be used. Though school site reservation is provided for within the City's ordinances, the provision has not been used. The City depends upon the Ukiah Unified School District Recommendations to implement this exaction. Depending upon the complexity of the project, City service can be completed in less than 60 days. Apartment projects in the proper zone can be approved by the Planning Commission within 30 days of the City's receipt of application. Building permits are typically issued within two weeks of applications. Use Permit projects have a similar time frame. Condominium projects are usually approved within the same 30 day time 18 period but require an additional 21 days for City Council action on the tentative map. Final map processing is also 51 days after the engineer- ing submits it and granted there are not significant errors to be cor- rected. Tentative subdivision map can usually be handled in 51 days unless considerable controversy is raised. Then additional public hearings are necessary. Only one project in seven years has been drawn out more than one year prior to approval. That project is a 55 acre Planned Develop- ment subdivision which required annexation, prezoning, use permit for development (it was the first Planned Development project in the communi- ty) and subdivision maps. In addition to the significant time in front of the Commission and Council before approval, considerable delays were imposed by the developer in the form of a revised tentative subdivision map, lawsuit and general non-action on the project. The City has no statutory control over interest rates, financing, land costs or construction costs. Though assistance programs, low interest loans, land write downs and self help activities could be sponsored, the City cannot embark on such financial packages by itself. The City has an energy conservation program. A City staff energy Auditor assisted the residents for 18 months and 475 customers utilized the service. The City has also embarked upon several projects (NCPA, Lake Mendocino Hydroelectric, and miscellaneous other, small head hydros) with the intent of becoming energy self sufficient and passing the'savings to the consumer. Currently the City rates are 3-5% less than P.G.& E.'s with greater savings anticipated. Conservation through the auspices of the auditor and educational data from the Electric Division will allow even greater savings. Because of the relatively compact nature of the City residential areas being within very easy travel distance to work places, walking and bicycles are common modes of transportation from the westside residential neighborhoods to downtown. Joint commercial (residential use in down- town) is also being explored. Planned Development projects, most notably the Hunt Townhouses, did utilize common wall construction at a density of 12 units per acre and reduced street widths were approved to lower costs and energy requirements. LABOR FORCE AND INDUSTRY OUTLOOK LABOR FORCE OUTLOOK Mendocino County's employment expansion will be healthy throughout the forecast period, although gains will be somewhat larger in 1984 than in 1985. Unemployment figures will mirror this trend with a larger decline being noted in 1984 compared to 1985. The number of jobless began to drop during 1983 from the 1981-82 recession's peak levels. However, even by the end of 1985 after over two years of steady improvement, unemploy- ment will still be considerably higher than pre-recession figures. 19 Mendocino County Civilian Labor Force, Employment, and Unemployment December 1982 - December 1985 December*** Forecast 1982 1983 1983 1985 Civilian labor force* 33,000 31,725 32,425 32,975 Employment 26,775 27,100 27,900 28,500 Unemployment 6,225 4,625 4,525 4,475 Unemployment rate** 18.8 14.6 14.0 13.6 *Labor force by place of residence. Employment includes persons involved in labor-management trade disputes. **The unemployment rate is computed from unrounded data; therefore it may differ from rates calculated by using the rounded figures in this table. ***December figures used in staff report because annual data not available. Above information from "Annual Planning Information, Mendocino County 1984-1985", published by the State of California Employment Develop- ment Department May 1984. HOUSING PROGRAMS The performance record of the City in the area of support and approval is obvious. The items in the action program are geared for implementation within a five year time frame. We intend for these action items to meet our goals under the Mendocino County Housing Needs Plan. Dependence on the agencies already noted, the currently approved projects, the vacant available land, and the economic situation will dictate the housing opportunities in this community's future. The City has established quantified objectives regarding housing within the corporate limits for the period 1983-1990. As noted previously, all agencies involved in housing production will be depended upon to meet these objectives: New Construction - 900 units Rehabilitation - 350 units Conservation - 35 units 2O ACTION PROGRAM: 1. The City shall continue to review the Zoning Ordinance and Subdviision regulations to eliminate those items which decrease housing availability and affordability, but do not affect public health or safety. These areas are in addition to the recently adopted modifications to the Zoning Ordinance in which covered off-street parking was eliminated, setbacks were reduced from 20 to 10 feet, maximum lot coverage was eliminated, mobile homes were allowed in all residential zones, and the minimum sizes for mobile home parks was reduced. 2. Continue to cooperate with local housing assistance agencies and the sector to pursue various avenues of State and Federal funding assistance. Be Property rezoning to PD "Planned Development" shall be encouraged and expedited to facilitate cost saving development techniques. o In accordance with the Mendocino County Council of Governments (MCOG) "Mendocino County Housing Needs Plan", the City will continue to pursue with the Mendocino County Housing Authority and with Rural Communities Housing Development Corporation (RCHDC) and any other interested parties, those housing programs designed to meet the documented need. The City will cooperate with MCOG in its review of these allocations every three years. 5. The City will generate on an annual basis appropriate housing related information using, as the basis, the various analyses provided in the 1980 Federal Census and the CRIS Model data for evaluation of fiscal impacts. Staff shall report progress on implementation of the Housing Element twice yearly. 6. The City of Ukiah shall support the following programs: The Mendocino County Housing Authority/Community Development Commission shall act on behalf of the City in making application to the Department of Housing and Urban Development for Community Development Block Grand funds. It will also be responsible for overseeing and running housing rehabilitation programs, the Home Ownership/Home Improvement (HOHI), State Housing Advisory Service Programs, CDBG-funded programs, and other housing programs, It is the agency with primary responsibility for developing housing pursuant to Article 34 referendum authorization and it will act as a source of information regarding various federal and State programs which make monies available for new construction and rehabilitation of existing housing. It should emply a person whose function will be to act as a specialist in housing development and who can advise individuals and developers of low and moderate income housing of techniques and available funding to help facilitate government processing for developments providing low and moderate income housing. 21 Rural Communities Housing Development Corporation (RDHDC) and/or other qualified private non-profit corporation will act as a devel- oper of state and federally financed housing for lower income house- holds, will provide technical assistance on a contract basis to developers regarding federal and state programs, and will develop a management capability, either in-house or by establishing a separate entity, to manage rental properties providing housing to lower and low income families. RCHDC will also be responsible for the con- struction and development of housing which can only be sponsored and/or owned by private, non-profit entities. The local churches will be requested to inventory and assess vacant land owned by church organizations which is appropriate for, and which might be made available, for meeting housing needs of seniors, handicapped, and other low income households. They should be asked to consider acting as sponsors of low income and senior citizens' housing. They should also play a major role in developing an emer- gency shelter facility. Service clubs will be requested to offer assistance such as volun- teered time, donations of materials, etc. in the development of specific projects, such as an emergency shelter facility. 7. The City shall through all available means, particularly the monthly newsletter, educate the community at large and make available perti- nent information regarding the necessity for affordable housing projects which may decrease the amount of time required at public hearings for project approval. Currently the applications are processed within 30 days from receipt of the applications to the first public hearing. 0 The City shall implement AB 1151, "Bonus Incentives for Affordable Housing", Chapter 1207, Statutes of 1979, through the unit density bonus process and all other appropriate available incentives. The City shall estalish a policy to implement the density bonus and resale control provisions of the law by December, 1984. e An anti-discrimination ordinance shall be adopted by the City prior to December 1, 1985 in addition to an actively promoted educational outreach program. 10. The City of Ukiah will encourage attempts to maintain existing housing stock through maintenance and rehabilitation grants. Fur- ther, a procedure should be developed in which demolition permits are referred to the Mendocino County Community Development Commis- sion for rehab and other available means of maintaining the unit in a residential character. 11. The City shall continue to inspect existing rental units upon written request, but at reasonable cost, with a report presented to the owners and the occupants outlining health and safety dangers and requiring compliance with the Housing Code, pursuant to Revenue and Taxation Code Section 17299 and 24436.5 22 12. City staff will assist the Community Development Commission to prepare a summary of available rehabilitation loan programs and also study the feasibility of marketing revenue bonds to raise additional monies for this purpose. 13. The City will continue to preserve its architectural heritage through the State Historical Building Code and the Marks Historical Rehabilitation Act of 1976. An Historical Architectural Committee has been formed. 14. The City will continue to work with the Community Development Commission to locate and acquire sites for resale to developers or owner-builders of housing for low and moderate income persons. The City's Community Development Block grant Funds may be utilized for this type of proposal to be administered by the Housing Authori- ty/Community Development Commission. 15. A study of the utilization of performance standards in zoning and sub-division regulations, instead of specification standards shall be completed and reviewed by the Planning Commission and the City Council by June, 1985. 16. The City shall consider the data developed by the County relative to "Farm worker" housing and determine appropriate actions to pursue. This evaluation is to be completed by March 1985. 17. The City shall have a consultant complete an update survey of the housing conditions within the City by December 31, 1984. 18. The City shall continue to support efforts by the existing Emergency Housing Task Force and encourages that body to report to the Planning Commission. 19. The City of Ukiah will notify the school district of any major development that may have impact on the local school system. 20. Investigate the feasibility of submitting an application for a mortgage bond allocation from the State Mortgage Bond Allocation Committee. The feasibility of Mortgage Revenue Bonds for a small city such as Ukiah is enhanced by participating in a bond pooling effort with other jurisdictions. The City is then able to use the bond proceeds to provide low interest rate loans to eligible recipi- ents to finance the purchase of homes by participating developers. 23