RES-8225 Approving General Plan Amendment No. 5-93RESOLUTION 8225
A RESOLUTION OF THE CITY COUNCIL OF
THE CITY OF ORANGE UPHOLDING THE
RECOMMENDATION OF THE PLANNING
COMMISSION OF THE CITY OF ORANGE
AND APPROVING A GENERAL PLAN
AMENDMENT REQUEST TO AMEND THE
HOUSING ELEMENT OF THE GENERAL
PLAN
GENERAL PLAN AMENDMENT 5-
93 APPLICANT: CITY OF
ORANGE WHEREAS, after duly noticed public hearings as required by law, the
City Council of the City of Orange considered a recommendation of the
Planning Commission of the City of Orange recommending, by Resolution No. PC-
29-93, that the City Council approv~ a General Plan Amendment request to
amend the Housing Element of
the General Plan.WHEREAS, upon close of the public hearing before the City
Council, did find
the following facts:1. That the request is to amend the Housing Element of
the General Plan for
the following reasons:A. To promote equal housing opportunities of all
segments
of the community.B. To encourage and promote development of
affordable housing in order to meet the needs of all residents of the
City of Orange within the
various income ranges.C. To encourage the maintenance, preservation
and upgrading of the quality of
existing residential neighborhoods.D.To promote opportunities for affordable housing beyond
the City'simmediate
corporate limits.r E. To encourage housing projects
designed to accommodate residents of the City that have special and
unique housing needs.F. To sponsor programs which heighten
community awareness for preservation of historically
significant residential structures.G. To support programs which promote
fair housing opportunities.2. A previous Environmental Impact
Report (State Clearinghouse 88072721) was certified in August 22,
amendment is within the scope of the program approved in August of
1989 and is adequately described for the purposes of CEQA.
NOW, THEREFORE, BE IT RESOLVED that the City Council of the City of
Orange that the recommendation of the Planning Commission be upheld and that the
City Council approve this General Plan Amendment which modifies the Housing
Element of the General Plan attached hereto as Exhibit "A".
ADOPTED this 24th day of August 1993.
Orange
ATTEST:
Marilyn J. Jensen
City Clerk of the City of Orange
GAAi~MrfIJ/;/;~ArX-
Deputy CitL1Clerk
I hereby certify that the foregoing Resolution was duly and regularly adopted by
the City Council of the City of Orange at a regular meeting thereof held on the 24th
day of Ano",;t , 1993 by the following vote:
AYES:COUNCILMEMBERS: SPURGEON, BARRERA, MAYOR BEYER,
COONTZ, MURPHY
NOES:COUNCILMEMBERS: NONE
ABSENT:COUNCILMEMBERS: NONE
Marilyn J Jensen
City Clerk of the City of Orang&
Q~-
Deputy
Ci~Clerk Reso
No. 8225 2-pss
FINAL
HOUSING ELEMENT
City of Orange
General Plan
Resolution No. 8225
August, 1993
City of Orange City Council
Gene Beyer, Mayor
Fred Barrera, Mayor Pro Tem
Joanne Coontz
Mike Spurgeon
Mark Murphy
City of Orange Planning Commission
Randy Bosch, Chairman
Bill Cathcart
Teresa E. Smith
Bob Walters
Ben Pruett
Orange City Staff
Jack McGee
Community Development Director
Jere P. Murphy
Community Development Department
Mary Ann Chamberlain
Community Development Department
Mary Ellen Laster
Redevelopment Agency
Consultants
Cotton/Beland/Associates, Inc.
UST OF TABLES
fm
Table H-l: Housing Element Requirements
3 Table H-2: Housing Element Policy
Matrix 12 Table H-3: Land and
Construction Costs 21 Table H-4: City of Orange - Vacant Residential
Land Inventory 26 Table H-5: East Orange - Vacant Residential
Land Inventory 28 Table H-6: Residential Holding Capacity of Orange and East
Orange General Plans 32 Table H-7: Available
Land Versus Housing Goals 35 Table H-8: Housing Overpayment
by Income Group and Tenure 36 Table
H-9: Special Housing Needs Summary 39
Table H-I0: Assisted Senior Housing
Projects 46 Table H-11: Assisted Housing Inventory 50
Table H-12: Monthly Basic Rents
for Casa Ramon 53 Table H-
13: Replacement Housing
Costs 56 Table H-14: Housing Program Summary
TABLE OF CONTENTS
Section fm
Introduction to the Housing Element 1
Purpose of this Element
Related Plans and Programs
Scope and Content of this Element
Community PartiCipation
1
2
4
4
Housing Element Goals and Policies 6
Housing Maintenance and Upgrading
Housing Affordability
Housing for Residents with Special Needs
Historic Preservation
Fair Housing Programs
Energy Conservation
Related General Plan Policies
6
7
9
10
10
10
11
Housing Plan 13
Summary of Housing Constraints
Summary of Housing Opportunities
Summary of Housing Needs
Summary of Past Housing Accomplishments
Assisted Housing at Risk of Conversion
Housing Programs
13
23
33
40
48
57
Purpose of
the Element
INTRODUCTION TO THE HOUSING ELEMENT
In July of 1987, the Orange City Council adopted an update of the Housing
Element prepared in 1981. This element represents a reformatting of the 1987
element to provide a format consistent with the 1989 comprehensive General
Plan update and to revise goals, policies and programs to include more up-
to-date housing data. The state Department of Housing and
Community Development (BCD) reviewed the City's (1989) adopted Housing Element
in March 1992, and identified several areas which, in their opinion
required revision to more fully address state housing element law. The City's
Housing Element is being amended at this time in response to HCD's comments,
to address recent changes in State law, and to incorporate housing programs
the City has undertaken since adoption of the previous element,
including formation of a non-profit housing
development corporation,As its name implies, the Housing Element addresses housing
and housing-related issues. This element builds upon the use policy presented in
the Land Use Element by identifying strategies and programs which
address housing affordability, rehabilitation of substandard units, and the supply
of housing needed to meet
future demands,The State has established general Statewide housing goals which
call for adequate housing to be provided for all income groups, To
implement this goal, the State Legislature requires that certain housing issues be
examined and addressed at the local level. The Housing Element serves as
the mechanism through which cities and counties work to support the
following Statewide
housing policies:The availability of housing is of vital Statewide importance,
and early attainment of decent housing and a suitable living environment
for every California family is a priority of the
highest order.The early attainment of this goal requires the cooperative
participation of government and the private sector in an effort to
expand housing opportunities and accommodate the housing needs of Californians
of all
economic levels.The provision of housing affordable to low-
and moderate-income households requires the cooperation of all
levels of government.Local and state governments have a responsibility to use
the powers vested in them to facilitate the improvement and development of
housing to make adequate provision for the housing needs of all economic
segments
of the community.The Legislature recognizes that in carrying out
this responsibility, each local government also has the responsibility
to consider economic,environmental, and fiscal factors and community goals set
forth in the Housing
Element - 1
general plan and to cooperate with other local governments and the State in
addressing regional housing needs.
The State, through the Department of Housing and Community Development,
has developed very defined guidelines to assist jurisdictions in further
developing and implementing housing policy at the local level. Table H-
l summarizes State
requirements.Related
Plans
and
Programs Because the provision of housing is a regional issue, regional agencies at
the County, State and Federal levels have been involved in developing
housing policies and programs which affect
Orange.SCAG Programs: Most significantly, the Southern California Association
of Governments (SCAG) has prepared a Regional Housing Needs
Assessment RHNA) for the five county SCAG region. The assessment, referred to as
the RHNA, outlines anticipated housing needs for all cities in the five
counties.The RHNA and its relationship to Orange housing policy are discussed in
the section of this element titled .Summary of Housing
Needs. .Slate Programs: The State Department of Housing and
Community Development has four divisions responsible for overseeing programs for
low and moderate income households. These four divisions and
their responsibilities are as
follows:1. Housing Policy Development Division reviews housing
elements.2, Community Affairs Division is responsible for loans and
grants.3. Codes and Standards Division is responsible for the State
Building
Codes.4. The Century Freeway Division is accountable for state actions
which abut the Century Freeway
communities.State programs such as the Rental Housing Construction Program
provide loans and grants through local or State agencies for housing
construction,rehabilitation, mobile home park conversion, rental assistance, and the
like.Federal Programs: Programs funded by the U.S. Department of Housing
and Urban Development (HUD) which provide grants directly to the City
of Orange include the Community Development Block Grant (CDBG)
program.Other programs are available for providing loans and grants directly
to organizations interested in constructing housing for low and moderate
income households in the City. Information about the various Federal programs can
be obtained from the local HUn field
office.Housing Element - 2
8/93
TABLEH-
I HOUSING ELEMENT
REQUIREMENTS REQUIRED HOUSING ELEMENT
COMPONENT l. Hnndna Need" .A".8;-
g 1. Analyail of population trend. in Orange- in relation to reJional
trend..2. ADaly.. of employment tmxIa in Oranp in relation 10
naionallleDdl.3. Projection and quantification of Oranac', cxiltina: and projected bouliaa Deed. for aU iacomc JI'
OUPS.4. Analy.. and documentation of Oranac', houJin&' characterillica iDcludina: the
folIowina:a. level ofhouaina ~ compand 10 ability to
pay;b.
overcrowdina;c. boom., IIOCt
coadition.s. An inventory of land lUitablc for relidcatial development, iDcludina v~ aitca, land bavina
ndcvclopmcnt potential, and an analyait of1be re1atiomhip ofmnina public facilitica and aeMcca to thee
aitca.6. Analysi. of exiltina and potenUal.ovemmcmalcon.Itaintl upoG the maintcnaace. improvement,
or development of houaina for all income
1evc1a.7. Analy.. of exillina and potential nonaovornmcDlal and marbl CODICIaiJU
upoa.maintenance. improvement, or development of houaina for all iDeome
1evelI.8. ADaly.;. of _ial hou.... need: bondicoppcd, eldotly. JaraefomiIie.. femaIe..beaded houeeholde,
formworIcen.9. Analysi. coocernm, the nccdaofhomele.. individual, and familioa in
Oraop.10. Analysi. ofoppol'ltlllitie, for ene..., conaervation with rctpeCt to
raidential
development.lB. Goals aDd
Policies 1. Identification ofOrangc', '001 and policiel relative to
mainlenaocc.improvement, and development
ofhouaina C. !mol_entation
Prooram An implementation proeram mould do the
foUowina:Identify adequate litu which will be made available throuab appropmte action with required public .
rvicea and facilitie. for a variety ofbou.m, typCli for all income
levcH.2, Proaram to ...... in thedevelop""lIl of odeq.....1loouine to .... the ..... of Iow- .nd
modenole-
income houlCbolcD.3. Identify and, 9ihen appropriate and pouible, remove aovemmentaJ. coutrainb to
Ibe maintenance,improvement, and development ofhou.m,
in Oranp.4. CODJC.rve and improve Ibe condition. oflbe exi.m, and affordable bouana 1Iock:
in Oranp.5. Promote
boo-na opponunitie..6. Preserve lower income household. .Hided hou.
ing clevclopmeD.lli.Housing
Element - 3
Scope and
Content of
this Element
Community
Participation
This Housing Element, together with the Housing Element Technical Report,
addresses all required housing issues identified in Table H-1. The main
point of the element itself is to define the housing goals, policies and programs
the City will establish to meet its housing responsibility. The element,
therefore,simply summarizes housing needs and constraints data and focuses
on describing the programs the City will implement to meet its housing needs
and to achieve housing goals. A complete compilation of demographic,
housing and employment statistics is provided in the Housing Element
Technical
Report.In order to involve City residents in the Housing Element update, the
City established a citizen's committee to draft housing goals and policies to
be included in the General Plan. The Housing Committee consisted of
eight citizens and one staff member. The Housing Committee met twice a
month beginning in June, 1985, Members were from neighborhoods
located throughout the City. The committee identified a number of goals
and recommendations which were summarized in a report titled "Orange
2000-Housing." The stated goal of the Housing Committee was to determine
what the desired needs and priority will be for all the various types of housing in
the year 2000 and provide the City with specific steps to achieve these goals.
The results of this community effort are summarized in the "Orange 2000"
report which was adopted by the City Council in
1986.As part of the overall General Plan update program conducted between
1987 and 1989, citizens were involved via public study sessions and hearings
before both the Planning Commission and City Council. Two study sessions
were conducted before the Plan underwent the formal public hearing process.
The Planning Commission held one hearing, and the Council led two
formal hearings plus a Council study session open to the public. The
hearings provided citizens with an opportunity to express citizen views on the
fmdings,conclusions, and goals, policies and programs spelled out in the
Housing
Element.Notification of public hearings on the General Plan were published in the
local newspaper (Orange City News), and was posted in the civic center and
public library. Copies of the Plan were also available for review in these
locations.Special interest groups and agencies were provided direct notice of
public meetings and hearings on the General Plan. These groups included the
Orange Park Acres Association, the Orange Unified School District, the East
Orange County Board of Realtors, and the Orange County chapter of the
Building Industry Association. This planning effort was preceded by the Orange
2000 planning report which commenced it's reports in June
1985.Housing Element - 4
8/93
The Orange 2000 process evolved with the formation of nine (9) individual
study committees with 74 citizens volunteers contributing approximately 3,400
hours in various meetings and study sessions. Through a series of Town Hall
Meetings, the Orange 2000 committees solicited input from citizens-at-
Iarge in the community which was reflected in their final report as stated
above. Many articles were printed in the Common Talk and Orange Independe1l1
which are both local newspapers which reach 35,000 or more households in
the
Orange area.Housing Element -
5 8/
Housing
Maintenance
and
Upgrading
HOUSING ELEMENT GOALS AND POLICIFS
The following goals, policies and implementation measures focus on the
maintenance of a variety of housing units in terms of type, affordability and
style. The policies emphasize the need to maintain affordable housing through
assistance programs ranging from housing unit rehabilitation assistance to
rental subsidies. The Housing Element goals, policies and implementation
measures are arranged under six issues categories including housing unit
maintenance and upgrading, housing affordability (both in the City and the
unincorporated sphere of influence), housing for persons with special needs,
historic preservation, enforcement of fair housing programs, and energy
conservation.
Substandard and deteriorating housing units, in addition to the obvious
problems of blight and appearance, can expose occupants to a variety of
hazards ranging from electrical fire to toxic substances and materials used in
construction. A number of factors will determine the life expectancy of a
housing unit including quality of workmanship, age of unit, location, type of
construction, degree of maintenance and upkeep, and a host of others. The
following goals and policies encourage the maintenance and upkeep of housing
in the City through a variety of programs ranging from financial assistance for
unit rehabilitation to continued code enforcement.
GOAL I: The City will work to assure that the quality, safety and
livability of the housing stock iff the City of Orange is continuously
maintained and/or upgraded.
POLICY 1.1: Encourage preservation of the existing housing stock with a
public information program, financial incentives, and code enforcement.
Imolementation 1.1 I: Continue to utilize Community Development Block
Grant funds to offer incentives to qualified persons to rehabilitate structurally
deficient homes and to promote preventive measures to maintain viability of
existing homes with the following programs:
a. Low-interest, long-term home
improvement financing 5
units/year);b. Deferred repayment home improvement financing for those
on fixed incomes (10
units/year);c. Homeowner participation grants for correction of urgent, health
and safety related deficiencies (4
units/year);d. Financial incentives for rehabilitation of rental units (10 units/
year); and e, Financial incentives tailored to meet the unique needs of
mobile home owners (Attempt to maintain at current
assistance levels).Housing Element -
6 8/
Housing
AffordabiIity
f. Housing Accessibility Program to provide accessibility improvements
in the homes of elderly and disabled owner occupants.
Implementation 1,1.2: Continue to provide technical assistance to all residential
property owners wishing to make property improvements through the Building
Division,
GOAL 2.0: The City will continue to encourage the maintenance,
preservation and upgrading of the quality of existing residential
neighborhoods.
POLICY 2.1: Encourage .the continued maintenance of residential
neighborhoods in Orange.
Imolementation 2.1.1: Continue the graffiti removal program currently offered
by the City which includes removal of graffiti from public and private
property, as well as offering rewards for information leading to the conviction
of persons found to be defacing property.
Imolementation 2.1.2: Continue to implement Chapter 8.05 of the Orange
Municipal Code, "Encouraging Residential Property Maintenance. "
Imolementation 2.1.3: Review zoning code provisions for the residential zones
in order to seek elimination of uses which are not compatible with the
residential environment, and look for opportunities to strengthen development
standards where the residential zones interface with other land use zones.
Imolementation 2,1.4: Discourage non-residential traffic through
residential areas by reviewing subdivision designs as well as monitoring
non-residential uses in
residential neighborhoods.Imolementation 2,1.5: Implement the Housing Needs
Assessment which assesses the community development needs in lower income
neighborhoods and to develop a strategy with which to address
these needs.Imolementation 2.1.6: Provide for and monitor the adequacy
of infrastructure needs within the
residential areas.Housing affordability was once a concern of only the very poor,
although this is no longer the case. Middle-class residents are
finding it increasingly difficult to maintain their standard of living due to increased
costs for housing.Younger families just entering the housing market often pay
mortgages three to five times greater when compared to the mortgage for the same
house less than a decade earlier. The City's conunitment to ensure that an
adequate supply of housing is maintained is underscored by the following
goal
and supporting policies.Housing
Element - 7
GOAL 3.0: The City will continue to encourage and promote development
of affordable housing in order to meet the Deeds of all residents of the City
of Orange within the various income ranges.
POLICY 3.1: Consider use of various incentives to encourage development of
affordable housing,
In pursuing this goal, it should be noted that the federal housing strategy does
not encourage government to take a direct role in the development of housing
but rather stresses incentives to private enterprise to meet housing needs. Most
significantly, federal funds have been either eliminated or substantially reduced
for this purpose. Accordingly; it is felt that the most effective method of
creating housing to meet the City's needs is to development incentives to
private developers to do so.
Imolementation 3.1.1: Continue to offer density bonuses of a least 25 percent
for developers of affordable housing with approval of a Conditional Use
Permit, as authorized by Section 65915 of the California Government Code
planning, Zoning and Development Law).
Imnlementation 3.1.2: Consider participation by developers in the mortgage
revenue bond program (both ownership and rental) which is administered by
the County of Orange to encourage development of affordable housing through
provision of financing.
Imolementation 3.1.3: Develop a fast-track development review process
to facilitate City processing of proposals for affordable
housing.Imolementation 3,1.4: Review the City's existing development processing
fee structure to determine if opportunities exist to waive certain fees to
encourage development of affordable
housing,Imolementation 3,1.5: Continue to use Community Development Block
Grant resources to meet community needs, and plan for the use of the 20
percent redevelopment set-aside funds for developer incentives to
encourage
housing affordability,Imolementation 3.1.6: Continue to implement the proVISIOns
of Sections 65852.1 and 65852.2 of the California Government Code (
planning, Zoning and Development Laws) related to second units in
single-
family residential zones.POLICY 3.2: Permit the development of manufactured
housing in single-family zones, as required
by State law,Housing
Element - 8
Housing for
Residents
with Special
Needs
GOAL 4.0: The City will continue to promote opportunities for affordable
housing beyond the City's immediate corporate limits.
POLICY 4.1: Plan for a mixture ofresidential density ranges in areas within
the City' s sphere of influence.
Imolementation 4.1.1: Provide in the General Plan Land Use Element a
variety of residential densities throughout the City's planning area.
The City intends to promote the construction of housing for both the elderly
and disabled. Problems of housing affordability are exacerbated because many
residents in these categories are living on fixed incomes. In addition, many
elderly and disabled persons require specialized equipment to improve access
and mobility. .
GOAL 5.0: The City will continue to encourage housing projects designed
to accommodate residents of the City with spedal, unique housing needs.
POLICY 5.1: Recognize the substantially increasing housing needs of the
elderly in Orange, and promote and encourage housing opportunities to this
group.
Imolementation 5.1.1: Encourage non-profit developers to seek
Federal Section 81202 funding for construction of a seniorlhandicapped
residential development. One hundred fifteen (115) units are estimated as
potentially
achievable.POLICY 5,2: Recognize the unique housing needs of the disabled,
and provide opportunities to accommodate those
needs.Imolementation 5.2,1: Continue to support the Housing Accessibility
Program for the disabled which provides grants to modify existing residential units
to accommodate the disabled.(See implementation measure 1.1.1
f.)POLICY 5.3: Work to further assess the needs of the homeless, and propose
a systematic solution to the problem. It is noted that the very nature of
the homeless problem requires a regional or Statewide approach due to
the transitory nature of that
population.ImDlementation 5,3.1: Work with regional agencies and
non-profit organizations to develop and implement a strategy to address the
problem of
the homeless.Imolementation 5.3,2: Allow for the operation of transitional housing
in multi-family and commercial
zone districts.Housing Element -
9 8/
Historic
Preservation
Fair Housing
Programs
Energy
Conservation
There are a large number of homes in the City that were constructed at the turn
of the century following the first subdivision of land in the 18708. Many of
these historic structures are in well-defined districts that are identified in
the Historic Preservation Element. The importance of preserving the past
is underscored in the following goal and policy which calls for continued
efforts in preserving those structures deemed historically significant by
the
community.GOAL 6.0: The City will continue to sponsor programs which
heighten community awareness for preservation of historically significant
residential
structures.POLICY 6.1: Encourage the appreciation for and preservation of the City'
s heritage in the form of those structures identified in the City's
historic structure inventory as historically
significant.ImDlementation 6. I.l: Implement the goals and objectives contained in
the General Plan Historic Preservation
Element.ImDlementation 6.1.2: Continue to enforce the Historic Preservation
Design Guidelines for Old Towne as they apply to residential
dwellings.Housing should be made available to all persons regardless of race, ethnicity
or income. The City will support Statewide housing goals that call for
equal opportunity for all groups to obtain safe, decent, and affordable
housing.GOAL 7.0: The City will support programs which promote fair
housing opportunities for all residents of
Orange.POLICY 7.1: Promote equal opportunity for housing throughout the City
of
Orange.ImDlementation 7.1: Provide financing support with Community
Development Block Grant funds to a Fair Housing Agency which investigates and
resolves cases of housing
discrimination.The City of Orange recognized its responsibility in promoting
energy conservation efforts in the construction of new housing and the rehabilitation
of existing units. Energy conservation serves to reduce energy costs,
and therefore overall housing costs, for persons living on fixed
incomes.GOAL 8.0: The City will encourage energy conservation in
residential
construction.Policv 8,1: Encourage energy conservation measures for all
residential rehabilitation projects in which the City participates
fmancially.Housing Element - 10
8/93
Related
General Plan
Policies
POLICY 8.2: Implement all applicable State statutes and regulations intended
to achieve conservation of energy.
ImDlementation 8,2.1: Provide all participants in the City's Housing
Rehabilitation Program with information on energy conservation, and
encourage participants to contact the appropriate utility company to arrange an
energy audit.
ImDlementation 8.2,2: Review all building permit applications to enforce
applicable statutes and regulations which relate to energy conservation.
A number of goals, policies, and implementation measures contained in the
other elements address those issue areas identified in the Housing Element.
Table H-2, Housing Element Policy Matrix, identifies those goals directly
or indirectly related to those included in this
element.Housing Element - 11
8/93
TABLEH-
2 HOUSING ELEMENT POUCY
MATRIX Issue Area Land Use Circulation Open Space" Safety
Noise
Conservation Housing Maintenance 1.0, 5.0, 6.0 6,0 1.
0 and Upgrading 7.0,8.
0 Housing Affordability 5,0,8.
0 Housing for Residents 5.0,8.
0,with Special Needs 12.
0 Historic Preservation 5.0, 6.0, 7.0 2.0 6.
0 Fair Housing Programs 5,0,8.
0 12.
0 Energy Conservation 5.0 1.
0 This table illustrates the internal consistency of the General Plan by indicating which goals in
the other five elements emphasize goals and policies spelled out in the Housing
Element.Housing Element - 12
8/93
Summary of
Housing
Constraints
HOUSING PLAN
As emphasized in previous sections, a primary goal of the City is to ensure that
all social and economic segments of the community have adequate housing
today and in the future. To implement this goal and related policies, the City
of Orange has targeted its housing and assistance programs to those households
with the greatest need. This section of the Housing Element identifies: 1)
potential constraints that may affect future residential development; 2)
opportunities for new housing; 3) households with special needs; and 4)
housing programs geared toward meeting identified needs. Finally, this section
evaluates the City's overall ability to meet regional housing needs as defined
by the SCAG-
RHNA.A number of actual or potential constraints will affect the development of
new housing and the maintenance of existing housing. These constraints may
be placed in three broad categories: governmental constraints, market
constraints and environmental
constraints.Governmental
Constraints The purpose of local governmental controls is to protect and further the
general welfare of the public. It is important to examine these controls periodically
to ensure that they are accomplishing their intended purpose.
However,government regulations can add to the cost of new housing.
Such governmental constraints include land use regulations, permit approval
and processing, and application and development
fees.Land Use and Zoning Ordinances: The City of Orange presently has
four General Plan residential land use categories: Estate Low Density,
Low Density, Low Medium Density and Medium Density. The applicable
density ranges and the corresponding zone districts are identified in Table LU-2
in the Land Use Element. The Zoning Ordinance specifies the standards
for the development of residential properties in the City and limits density
to the maximums set forth in the Land
Use Element.As of 1988, the incorporated City limits contained 37,142 total
housing units.General Plan residential land use policy will allow for up to 62,
701 units within the planning area, assuming 80 percent build-out of all
lands in Central Orange designated for residential use, plus build-out
of the East Orange General Plan as proposed. This represents a potential net gain
of 25,558 units.The 1988 SCAG Regional Housing Needs Assessment
calls for Orange to provide 3,857 units in the five year planning period
covered by this Housing Element. General Plan land use policy does not
place an constraints on achieving this goal since adequate land is
available for residential use.Zoning ordinance regulations establish a maximum
residential density of 24 units per acre (the R-4 zone). Density bonuses of up
to 25 percent may be granted for projects providing housing for
lower income families and the elderly. In addition, the zoning
ordinance contains special regulations
for Housing
senior housing projects which allow developers to provide more affordable
units. Adequate zoning mechanisms are .available to allow for construction of
affordable housing. However the City is in the process of adopting a revised
zoning ordinance by the end of the next element cycle. This revised element
would establish new density bonus criteria, revised second unit criteria and
Single Room Occupancy (SRO) Housing. The city is also formulating an
Affordable Housing Plan and Ordinance which will provide incentives to
encourage the development of new units for very low, low and moderate
income households.
Subdivision and Development Controls: Subdivisions and development
review are jointly coordinated by the Community Development and Public
Works Departments, A key element of this process is the consolidated review
by the Environmental Review Board which reviews a project's environmental
effects. The Environmental Review Board provides developers with a single
point of initial contact where all affected municipal departments are represented
and available to provide guidance, This approach eliminates the confusion and
inefficiency of dealing with each department on an individual basis. For
discretionary projects, this consolidated review process culminates in a
recommendation to the Zoning Administrator, Planning Commission and/or
City Council,
Processing of discretionary projects takes approximately 45 days from the time
of submittal to public hearing before the Planning Commission. Those projects
which must be heard by the City Council are scheduled about three weeks
following the Planning Commission consideration.
The City has street dedication requirements, with the developer constructing
the street (typical local street right-<lf-way of 60 feet, with 36 foot
curb-to-eurb paving). After construction is complete, the roadway is then
dedicated to the City. The City also participates in two sub-
regional programs designed to mitigate traffic problems. The Traffic
System Improvement Program (fSIP)requires developers to pay fees for
street improvements. The Major Thoroughfare and Bridge Fee Program is
a County administered program which applies to the eastern and southern portions
of Orange County. This program also levies fees for circulation
improvements from new development.Processing times are reasonable in view of the
constraints posed by legal notification, advertising, and the environmental
review process. There does not appear to be a legally sufficient method to reduce
the schedule in any significant way. A sampling of recommended
conditions of approval reveals that such conditions are not unreasonable and are directly
related to items of legitimate public interest (e.g., street grades,
slope maintenance, dedication of streets, provision
of street lights, etc.).In response to concerns about overcrowding, the City
prepared a study which reviewed the serious effects that overcrowding of dwelling
units has on city services. This study "Residential Occupancy Limitation
Study" looked at the adoption of an ordinance which attempted to
control overcrowding by limiting
Housing Element -
he number of occupants allowed per dwelling at levels lower than those
allowed under the State mandated Uniform Housing Code (1991 Edition).
After many months of public participation at City Council Meetings and other
meetings with neighborhood groups, the ordinance was not adopted because of
the courts decision regarding the City of Santa Ana's Residential Occupancy
Ordinance. Instead staff presented a comprehensive program which would
assure the preservation of the character and densities of existing residential
neighborhoods and be consistent with the goals, policies and objectives of the
General Plan. This comprehensive program included the following
components:
1. Continued enforcement of health and safety codes already in place.
2. Created Uniform Inspection Procedures
3. Adopted an education program for property managers and owners.
4. Adopted an ordinance which initiated a Reinspection program and fee
which focused on repeat violators of the Orange Municipal Code.
Other Code Considerations: The Orange Zoning Code contains residential
requirements for lot coverage, set backs, parking, landscaping, and open space
that are considered standard for suburban communities in Orange County and
Southern California. The City's Building Official can approve mobile homes
on single family lots, without a hearing or action by an appointed or elected
body. The City also utilizes the office of the Zoning Administrator which was
established to perform certain duties for the following purposes:
A. To provide a means of appeal by an applicant requesting relief from
administrative determinations, actions and decisions as specified
herein;
B. To provide a method by which minor adjustments from ordinance
requirements may be permitted without the necessity of the delays
incident to the setting of such matters for public hearing before the
Planning Commission.
C. To relieve the Planning Commission from the performance of certain
functions of a more routine nature which tend to divert this body from
the planning and major zoning functions entrusted to said Commission
by the Orange Municipal Code and the laws of the State;
D. To provide better and faster service to the citizens of the city and to
those persons desiring to develop projects within the city through the
reduction of the time necessary to consider minor adjustments from
ordinance requirements,
The Orange Zoning Code does not specify a maximum lot coverage within R-
I and R-2 zones, and therefore lot covertge is a factor of
the setback requirements of the underlying zone. .\)evelopment in the R-3
zone is limited to 45 percent lot coverage for two-sto~ structures, and
55
percent
coverage
for I I I
Housing Element -
three-story structures. Development in the R-4zone is permitted up
to 60 percent
lot coverage.Housing Element -
16 8/
Residential setback requirements are as follows:
Setback R. uirements
Location R-1 R-2
R-3 R-4 Front Yard
20 15 15 10 Side Yard
5 5 5 5 Rear
Yard 10 (1 story)20 (2
storY) 15 10 IO The City's off-street parking requirements are generally
two spaces per unit in R-l and R-2 zones, with only one space
in the R-2 zone required to be enclosed. Off-street parking in
R-3 and R-4 zones is based on the following number of bedrooms per
unit: 1.5 spaces for one-bedroom units; 1.8 spaces for
two-bedroom units; and 2.0 spaces for three-bedroom units. After 1989
these parking requirements were
changed to 2 spaces for two-bedroom units; and 2.2 spaces
for three-bedroom units.The City requires usable open space to
be provided in all residential developments according to the following standards: 875-1,000 square feet
per unit in R-l zones; 350 square feet per unit in R-
2 zones; 250 square feet per unit in R-3 zones; and
ISO square feet per unit in R-4 zones.The City
has already enacted an ordinance and supports the creation
of accessory second units ("granny flats"), as discussed in the section
on Summary of Past Accomplishments". Local building codes conform to accepted state
standards, and are enforced through practices which are similar to those
in surrounding cities. The City conducts sensitive enforcement of
its building codes, providing property owners in violation of City codes with information
on available rehabilitation programs and code enforcement grants of up
to $5,000. The popularity and activity of constructing new
residential units in Orange attests that the
entire development process, including subdivision and development controls, is not
overly cumbersome or costly compared to the region as a
whole.Processing and Permit Procedures: The processing of building permits in
Orange consists of two phases: preliminary review and permit issuance.Virtually
every prospective developer or builder is referred initially to the Current Planning Division
for a general evaluation of their proposal. A planner determines if the project
will have a significant impact on services and the environment. If staff
determines that the proposal will not result in any significant
impact, the permit advances to the permit issuance stage. In those instances
where a project will significantly impact the environment, the
proponent is given the
opportunity to
affected departments in the preliminary stages in this review. As a result, final
plans may be submitted and processed with minimum difficulties.
The second stage of the permit process commences with a request for
development permits by the proponent. Upon receipt of plans, each affected
department is formally consulted and required revisions to the plans are made.
After the necessary revisions have been made to the plans, the appropriate
permits are issued.
Review of development proposals takes three to 15 days, although the actual
length of time depends upon the nature of the construction project. This period
includes review of the plans by the various departments. In summary, the
current method of processing building permits does not result in any adverse
effects on the production of housing in the City of Orange. The
comprehensive preliminary review ensures that the aims of developers are
consistent with the City's long-term goals and objectives, Nevertheless,
the possibility of implementing a fast-track review process procedure
should
be evaluated.Local Fees and Exactions: Orange currently assesses typical fees
for zoning activities, subdivision processing, street lights, street trees,
utilities hook-up,park development, inspections, and grading and
building permits. The Community Development Department charges permit
processing fees for various applications related to housing. For example, a fee is
charged for the review and processing of a residential subdivision application.
Once the final subdivision map is approved and a developer is ready to
construct the project,assessments for parkland, street trees, utilities and the like
must be paid.Current fees are indicated in Appendix A of the
Housing
Element Technical Report.Lastly, the Orange Municipal Code requires fireproof
roofing materials in brush areas. This requirement will increase the cost for
construction of new housing where
these provisions apply.Fees and exactions do result in increased housing costs. The
City conducted a study in 1988 to review all fees imposed for various
municipal functions. The purpose of the study was to ensure that fees are legitimate and
that the amounts charged reflect actual costs. The current fee structure is a
result of that survey. Similarly, the City's dedication and improvements
requirements is a device commonly used by cities to receive public
improvements which directly benefit the future residents of a development. Finally,
the requirement of fireproof roofing in brush areas is thought to be a reasonable
response to the increased potential for widespread fire damage
in those areas.Infrastructure: Sewage collection is the responsibility of the
City; the Orange County Sanitation District is responsible for sewage
treatment. The City provides water service to most areas of the City. Water in
the newer sphere area will be provided by a cooperative agreement between
the Irvine Ranch Water District
and the City,Housing
Element - 18
According to City engineers and public works officials, there are currently no
significant infrastructure deficiencies (water, sewer, etc.), and it is anticipated
that future growth in the eastern sphere area can be accommodated with
extension of services. The cost for providing infrastructure will be paid using
developer fees,
The City's Public Works Director indicates that water supplies and facilities,
as well as sewer capacities, are anticipated to be sufficient to service the
growth anticipated in the East Orange area, including the 18,000 acre sphere of
influence. The conclusions assume the type of development in the future will
be similar to what has already occurred.
Market Constraints
Non-governmental factors which contribute to the difficulties a locality faces
in meeting housing needs are examined in this section. Most of these factors
are beyond the control of the City. Market constraints include such factors as
the price of land, cost of construction, and
financing.Cost of Land: A major consideration in evaluating the cost for
developing new housing involves the cost of land. A number of variables impact the
cost of residential land, including location, site preparation, density
permitted,improvements required, etc. For purposes of this analysis, however, the
City of Orange Real Property Division has provided the very general factor
of 9,00 per square foot for residential land in Orange (1992). This
translates into $392,040 per acre. During the past decade, the cost of improved land
has consumed a larger share of total production costs with the proportion
attributed to labor and materials
declining.High land costs serve as a major constraint to development. A local real
estate broker indicated that available multiple family lots in the older area of the
City ranges from $100,000 for a duplex lot to $125,000 for a multiple family
lot.While high land prices might serve to encourage higher density
development,the rehabilitation and gentrification trends may also discourage conversions
to higher density in the older core portion of the City. The availability of land
in the older core area is very limited. However, when parcels do
become available in larger sizes (minimum one acre size), prices range from $8.00
to 10.50 per square foot. Land in East Orange, which is owned by the
Irvine Company, is selling for approximately $500,000 per acre, which includes
the cost for infrastructure
improvements,Construction Costs: The actual cost for construction is the most
important factor in the cost for new housing. Construction costs, in turn, are affected
by a number of factors including the cost for labor, building materials, and
site preparation. To illustrate the high cost of new housing, the
International Conference of Building Officials (ICBO) estimates that the cost of wood
frame residential construction ranges from $41.00 to $57.50 per square foot or
an average of $50.00 per square
foot.Housing Element - 19
8/93
Mortgage Costs: According to 1he Central OIange County YWCA Dispute
Resolution Center which provides fair Ilousing services for the city, there is no
indication that 1ha-e are any mortgage deficient :areas in the City due to "
red-lining." This has been wnflfDledwith 1he City's Economic
Development Division of the Community Development Department, which deals
extensively with local lenders who have knowledge of loans in lower income areas in
the
City.Mortgage rates applicable to the City of Orange are similar to those
in surrounding areas. This would appear to confirm conclusions that financing
of housing in the City of Orange is similar to housing costs elsewhere in
central Orange
County.Environmental
Constraints A wide range of environmental factors may constrain the development of
new housing in the City. Areas of special environmental significance,
potential safety hazards and development constraints will influence land use policy.
The Safety Element identifies areas of Orange subject to a number of
environmental constraints, including those areas subject to flooding, landsliding and
faulting.The Open Space and Conservation Element, in turn, identifies areas
where significant ecological or natural resources are located. These
constraints include both natural and man-made factors that will continue to
influence long-range land
use planning.Flooding: The Federal Emergency Management Agency (FEMA)
publishes a series of maps which identify areas of the City subject to flnoding in
the event of a major storm. These maps, referred to as Flood Insurance
Rate Maps FIRMs) indicate areas that may be inundated in the event of a lOO-
year or a 500-year storm, In addition, the maps indicate the
base flood elevations at selected
intervals of the floodway.The flood map contained in the Safety Element
Technical Report (Figure S-3)indicates a potential for storm related flooding
along the Santa Ana River,Santiago Creek and Handy Creek,
Additional flood hazards include the potential for inundation
from dam or levee
failure.Housing
TABLEH-
3 LAND AND CONSTRUCTION
COSTS Type of Development
Costs City of
Orange Existing Homes $255,
000 Existing Condos $143,
000 New Home/Condo $246,
000 County of
Orange Existing Homes $225,
000 Existing Condos $147,
000 New Home/Condo $258,
000 Average Building Cost $65-70 per
square foot
new construction):Cost figures are based on home prices from the Los
Angeles Tll1Ies
Sunday HHl4-92).Housing
Element - 21
Three major flood control reservoirs are located on streams that run through
Orange. The three facilities of concern include Prado Dam, Santiago Dam,
and Villa Park Dam. Extensive flood damage could occur in the event of dam
failure at any of these three facilities. Figure S-4 in the Safety
Element Technical Report identifies those areas of the City that might
experience flooding in the event of dam
failure.Hillsides: Topography in portions of the planning area contain slopes that
are too steep to easily accommodate development. The potential for slope
failure will increase due to grading practices prior to construction and
overwatering once developments have been completed. In addition, many landslides
are caused by
earthquakes.Geologic Hazards: The entire planning area is located within a seismic
ally active region that has been subject to major earthquakes in the past. The
San Andreas Fault, Whinier-Elsinore Fault, Newport-Inglewood
Fault and San Jacinto Fault are active faults located within 30 miles of
Orange. Other major faults may be buried under alluvium, or fault traces may
have been obliterated due to natural weathering. Two of the most
destructive earthquakes that occurred in California in recent years, the Coalinga
and Whittier earthquakes,originated from
previously unknown faults.A number of smaller fault traces are located in the
northern and eastern portions of the Planning Area. The EI Modena Fault traverses the
base of the Peralta Hills. The Peralta Hills Fault is located in the Peralta Hills
just north of the EI Modena Fault, as shown on Figure S-2 in
the
Safety Element Technical Report.Wildland Fires: The greatest potential for wildfire is
in the undeveloped areas located in the northern and eastern portion of the planning
area. The risk to homes from wildfire will increase as development
spreads into the chaparral covered hillside
areas in eastern Orange.Noise: Noise generated from mobile sources such as
traffic and aircraft will continue to have the greatest potential impact on land
use. The Noise Element describes the existing noise environment using maps that
indicate high levels of noise in the planning area, The Noise Element
also identifies noise sources and recommends goals and policies that will be useful in
reducing the effects of noise if not the actual intensity of noise. Land
use policy discourages the placement of noise sensitive land uses in areas that are
subject
to high noise levels.
Housing Element -
Summary of
Housing
Opportunities
Potential for residential growth in Orange may take place in various areas of
the City, including vacant or underdeveloped residential land now in the City,
vacant or underdeveloped residential land planned for annexation as part of the
East Orange General Plan, surplus school properties, residential development
within the Old Towne commercial area, Commercial Mixed Use Areas and the
Depot Area. All of these potential areas are further described on the following
pages. The evaluation will begin by reviewing new construction
accomplishments since July 1989 and comparing them with RHNA.
New Housinl! DevelODment since Julv of 1989:
The following information is provided to document the level and affordability
of residential development during this housing element cycle which extends
from July 1989 through June 1994.
The City's RHNA for the 89-94 element cycle is 3,857 units with 650 units
for very low, 877 for low, 824 for moderate and 1,505 in the upper category.
The following table compares actual new construction between July 1989
to December 1992 with these RHNA
goals.Year Very Low Low Mnderate UDDer
TOTALS 1989 (After June) 18 12 62
92 1990 380 105 316
801 1991 110' 6 18 82
216 19922()2 35 8 99
162 TOTALS 130 439 143 559 1,
271 The above figures are based upon actual reporting to the State Department
of Finance. While the City has met only 37% of the total RHNA numbers,
note that the City has met more than half of the very low income units and half
for low income. The single family units were all placed in the upper
income category, the town homes and attached single family in moderate and
the apartments into the low category, Because of the lack of detailed
information,it is possible that some of the units should be placed into a different
category,such as some of the single family's might belong in the moderate category
as maybe some of the apartments should be in the moderate category.
Because the rental rates for Orange County for low income households range from $
527 to $772 and these units are known to be in this price range the units were
listed under the Low category. Because rents for very low income units are less
than 533 (2 persons) $461 (1 person) these 330 units were placed in the very
low category. It should be noted that because of recession and poor
economy,1 Chapman University Student Housing (New Donnitory with monthly ratea oflcas
than 300.00 per
month.2 Shelter for Women with Children (See page 72 - Transitional Housin&)
Housing Element - 23 8/
93
development of new housing stock has dropped off drastically. Because of
these factors, it's unlikely that the RHNA totaIscan be achieved. The City
does have the land inventory to fulfill the future needs if the economy should
turn around. To date, the following projects have been approved but not
constructed:
Serrano Heights:
townhomes
Inter-
American:Santiago
Creek:
Southridge:Park
Ridge:
TOTAL 1,600 units (C.ondos - 1,000 MF and 600 SF
162 units (Townhomes)
240 unit~ (Multi Family - 91 Senior units)712
units (175 Single Family) (539 Condominium)325
units (Sim!1eFamilv)3,
132 units Had
these units been constructed as was planned in the late 80's when the RHNA
numbers were approved, the City would have more than fulfilled its regional
housing need.During
this 89-94 element period the City and the Redevelopment Agency have
not only formed a non-profit housing (OHDC) corporation, but are
also actively involved in providing affordable housing. Listed below are some
of the 1992
projects.Proposed City/Agency Assisted Housing
Projects 1.Project
Name:
Location:No. of Units &
Type:No. of
Affordable:2.Project
Name:
Location:No. of Units &
Type:No, of
Affordable:3.Project
Name:
Location:No. of Units &
Type:No, of
Affordable:4.Project
Name:
Location:No. of Units &
Type:No. of
Affordable:Walnut
Court 151S 'E.
Walnut 7 (3-Bedroom) -
rental 3 for very low
income Pixley
Project NE Corner of Pixley &
Almond 15 Senior Units - rental
7 units for very low income
Citrus Village
500 N. Citrus
47 - rental 11 (
I-Bedroom) - rental (very low)II (
2-Bedroom) - rental (very low)New
RIO Project (Section 811)Pending
40 -
rental All affordable
and for handicapped Housing Element -
24 8/93
5.Project Name:
Location:
No. of affordable:
Walnut I
4649 E. Walnut
No. of units undetermined
Agency is developing an RFP to request a developer to construct single
family and possibly purchase adjacent property of one plus acre.
Proposed detached units for purchase at under 120% of median.
Vacant Land Inventorv
Existing City Limits: The City's older residential neighborhoods lie in an
area bounded generally by the Costa Mesa Freeway on the east, Garden Grove
Freeway on the south, Santa Ana River on the west, and City of Anaheim on
the north. This area also includes the historic core - several blocks surrounding
ChapmanlGlassell Plaza - which contains several commercial and residential buildings
constructed around the turn of the century.East of
the Costa Mesa Freeway, development consists primarily of single-family residential
and strip commercial development constructed in the 19608 and 19708,
Newer single family residential (built in the past ten years)characterizes the
area built to the east of the ridgeline known as Santiago Hills.Within the
city limits of Orange, there are approximately 1,122 acres remaining vacant
that could support an additional 5,957 dwelling units and 17,274
residents (see Table H-4). Based on existing infrastructure limitations,combined
with the presence of significant unit overcrowding, the General Plan generally
assumes average densities at the middle of the density range. The City'
s policy will be to focus its highest density housing in the east Orange area,
which will have the infrastructure capacity to serve such development.However,
sites within the current city limits that do have adequate facilities and
services will be encouraged to develop to capacity, particularly where affordable
housing is to be developed.Housing
Element - 25 8/93
TABLEH-
4 CITY OF ORANGE - VACANT RESIDENTIAL LAND
INVENTORY
MARCH 1993
Buildout Caoacitv
Land Use Designation Density Vacant Units] Population4
DUlac! Acres2
EstateS 1-2 359 539 1.
563 Low 2-6 553 2.
212 6414 Low-Medium 6-15
172 2408 6.983 Medium 15-
24 38 798 2.314
TOTAL 1122 5.957 17274 Avel1lged densities are Estate = 1.S DUlac;
Low Density = 4.0 DUlac;Low-Medium = 14.0 DUlac;
and Medium Density = 21.0 DUlac.Based on Orange GeneralPlan
Land Use Element (August t989).
2 Vacan! acres times averaged densities.4 Based on 2.
90 persons pr unit (
1990 Census),5 Includes
rural units.
East Orange: In 1989, a general plan amendment for approximately 7,100
acres east of the City was approved and is now referred to as East Orange
General Plan. The general plan amendment prepared for this area is
summarized in Table H-5. East Orange is a master-planned
community with employment centers, clustered residential development,
community commercial centers, and various public facilities, including new
freeways (Eastern Transportation Corridor). This area will eventually support
an additional 12,350 units and 35,815 residents. While overall housing
density categories are comparable to those in central Orange, infrastructure capacities
in east Orange can more easily support housing at the upper end of the
density range.The Medium Density and Mixed Use categories provide capacity for
4,346 dwelling units at densities ranging from 15 to 24 units
per acre.The East Orange General Plan is within the City's Sphere of Influence,
and is owned in entirety by the Irvine Company. The City and Irvine
Company have entered into an Annexation Agreement for the East Orange
area, which commits to annexation of the 7,100 acre area within ten years of
the adoption of the General Plan (by December 1999). Annexation will occur in a
series of four phases, with the specific plan for Planning Area 1 currently
underway and annexation anticipated by mid-nineties. This Planning
Area will include approximately 3,500 dwelling units, approximately 60 percent (2,
100 units) of which will be within the Medium Density and Mixed
Use categories, providing for densities up to 24 units/acre and higher utilizing
density bonus provisions.The City is also formulating an Affordable Housing Plan
and Ordinance which will provide incentives to encourage the development of new
units for very low, low and
moderate income households.Housing
Element - 27
TABLEH-
S EAST ORANGE - VACANT RESIDENTIAL LAND INVENTORY
Buildout Canacitv
Land Use Designation Density Vacant Units2 Population3
DUlac! Acres2
Estate 1-2 764 300
870 Low 2-6 1218
4293 12450 Low-Medium 6-
15 458 3411 9892 Medium
15-24 176 3468 10057 Mixed
Use 15-24 249
878 2546 TOTAL 2865 1235035815 Averaged densities are Estate =
0.4 DUlac; Low DensitY = DUlac;Low-Medium = 7.4
DUlac; and Medium Density = 19.7 DUlac.2 Based on East Orange General
Plan (December 1989).
Buildout planned for more than 20 years.3 Based on
2,90 persons per
unit (1990
Underdeveloped Prooerties
Past zoning and general plan designations have assigned higher densities to
some of the older, developed core area in Orange which supports single-
family homes, These lots have the potential to be redeveloped at
multiple-family densities. However, relatively few building permits have been issued
for those lots containing older single family structures. In addition, there have
been few residential demolitions in recent years due to the trend towards
gentrification of some of the older neighborhoods, with younger families
purchasing older dwellings and restoring them. Intensification has occurred
through the development of second units on single-family lots, frequently
above a detached garage. The City has adopted an ordinance to facilitate the
creation of second units as a means of providing
affordable rental housing.The City is presently considering zoning and general plan
changes in older neighborhoods that would encourage greater preservation
of existing housing stock while allowing for a moderate amount
of additional residential development. Other underdeveloped parcels continue
to exist Citywide,providing opportunities for redevelopment and recycling to
higher densities. A net increase in 7,665 units could be achieved
through unit recycling.
SurDlus School Prooerties Presently there are two separate school sites which could
possibly be converted to uses other than schools in the near future. The Walnut School
site is ten 10) acres and could possibly be available for conversion
to either single-family uses, or single family uses with
some multiple family uses,Another site is the vacant educational center located
at 370 N. Glassell.Presently this site is vacant and could possibly be
available for conversion to either commercial, multiple family or a
combination of both uses.Residential DeveloDment in
Old Towne Commercial Area The Old Towne commercial core area centers around the
City's Plaza and extends east and west along Chapman Avenue and
north and south along Glassell Street. General Plan policy for the "
Commercial - Old Towne"designation permits residential uses in conjunction
with commercial husinesses upper story apartments, artists lofts) or as free-
standing uses. The permitted density range is six to 24 units per acre.
This Old Town Commercial designation should not be mistaken for the "Commercial
mixed Use areas" as shown on the City's General Plan. The level
of future residential development in this area of Old Towne cannot be accurately predicted, but
the City plans to encourage such mixed use development. Additional units
in this area are included in the buildout calculations addressing recycling
of developed areas in Orange, as
outlined in Table H-
6.Housing
Commercial Mixed Use Areas
Two shopping centers which are zoned Commercial with tremendous
development possibilities for low and moderate income housing are the "Town
and Country" and "The City" Shopping Centers. The City's zoning code
allows residential development in conjunction with commercial development
subject to a conditional use permit. The "Town and Country" is presently
developed with single story retail stores, offices and at grade parking which
tends to convey underutilization of these parcels. This 15 acre site has public
transportation, shopping facilities, educational facilities and would lend itself to
more intense development with possibly mid-rise and parking structures.
The area surrounding is developed with mid and high rise structures, with a
variety of adjacent land uses: office towers, hospitals, medical offices,
commercial retail, education facilities and other residential (multi family)
communities.Immediate access is available to both the SR 22 Freeway and 1-
5 Freeway.The Orange County Fixed Guideway is proposing a nearby station
area while local buses run frequently on Main Street, the major arterial that
fronts the Town
and Country."The City" Shopping Center complex is presently developed with
single story retail stores (mall), at grade parking, several high-
rise office buildings,restaurants, movie theaters, and several hotels. This site
is approximately 60 acres with development potential because of the under utilized
mall with at grade parking (similar situation as Town and Country).
The complex is surrounded by the UCI MedicJII Center,
Medical offices, Library Administrative Offices, Orange County Family and Iuvenile
Courts and other county facilities. There are also existing multiple family
neighborhoods in the area. Immediate access is available to the SR 22 Freeway
and nearby 1-5 Freeway. The Orange County Fixed Guideway is
proposing a nearby station area while local transit buses run frequently on
nearby Chapman and City Drive which are major arterials. This site would lend itself to
mid rise or high rise structures for low and moderate income,
multiple family development. No density caps have been imposed on these
two shopping center complexes.Both of these areas are located within the Redevelopment
Project areas for the city and the Agency could offer financial assistance or buy
units in order to make them affordable to very low, low and
moderate income families. These areas are looked at as a long term project over three (3) to
eight (8) years in the future. Presently the Agency staff is working with
the owners in preparing their long term plans for
these two commercial areas.In Table H-6 110 acres of Commercial Mixed
Use have been shown which could provide
a minimum
of 400 units.Deoot Area The City is in the process of adopting a specific plan for a
42.8 gross acre area of land surrounding the Santa Fe depot. This plan is
known as the Santa
Fe Housing
Depot Area Specific Plan (SFSP) and is located four blocks west of the
downtown Orange Historic Plaza Area. One of the factors for creating this
plan is that the Southern California Regional Rail Authority (SCRRA) is
including Orange as a commuter rail stop at the Santa Fe Depot site. Adjacent
to the depot is a 10 acre site which presently exists as a manufacturing area.
This area has been identified as a site where some senior and low/moderate
income housing could be constructed along with conventional housing. The
housing product is envisioned as two (2) stories over semi-
subterranean parking which would have a community orientation to the surrounding
Old Towne area. The type of housing is anticipated to be
condominiums,townhouse and stacked flats, rental apartments and senior units. According
to the specific plan, this is a long term project to be developed over the next 3
to 9 years. However, the commuter rail station will commence operation
in December of 1993. This area is part of a Redevelopment Agency project
and the Agency could either buy down the land costs with set-aside funds
and/or purchase units in order to provide affordable units. It is projected
that 250 units could be accommodated on this proposed site. The SFSP sets
out design guidelines and development standards for this area. (These units
are reflected in
Table H-6.)Housing
Element - 31
TABLEH-
6 RESIDENTIAL HOLDING CAPACITY
OF
ORANGE CityWide
Railroad Depot
Area Land Use! DUlac Acres Units Acres
Units RurallEstate 0-2
1108 1162 Low 2-6
6861 27.562 Low-Medium
6-15 1.264 9510 Medium 15-24
737
10 732 IO 25()
2 Unlimited Mixed Use 110 400
TOTAL 10 080
49366 10 250 Ponulation3 143451 725 3 Based on 2,
9 persons per unit (
1990 Census).
Summary of
Housing
Needs
A primary goal of the City is to ensure that all social and economic segments
of the community have adequate housing to meet existing and future needs. To
implement this goal and the related policies, the City of Orange has targeted its
housing and assistance programs to those households with the greatest need.
This section of the Housing Element is specifically concerned with identifying
the number of households that meet Federal and State criteria for special
consideration when discussing specialized needs. The five major "needs"
categories considered in this Element include:
Housing needs which result from in~ed population growth in the
Planning Area and in the surrounding region;
Housing needs resulting from the deterioration of existing housing units;
Housing needs that result when households pay more than they can afford
for housing; ,
Housing needs resulting from the presence of "special needs" groups such
as very large families or female-headed households;
and
i Housing needs for those without any shqlter or those households
requiring temporary
shelter.Some households may be included in one or more of these categories
since each category is not mutually exclusive. For:example, a low income
household may also be a single parent household residilig in a substandard
unit.Housinl! Needs Due to PODulation
Growth The land use policy contained in the Land Use Element indicates the
location,extent, and density of future development in the planning area,
including residential
development.In the past, population growth in the City has resulted primarily
from annexations. Between the years 1950 and 1980, the City's
boundaries expanded in area from 8.8 to 23 square miles, and add 12,350 dwelling
units to the City's housing stock. With the annelWltion of East Orange, the City
will grow by over 28 square miles. The majori~ of future residential
development will occur in the East Orange
area. ;
I Existing City Limits: An estimated 37 ,14~ dwelling units existed in the
City as of 1988. A total of 80,030 total units, or an additional 42,888 units,
could be constructed within the City if the land \fse policy, as outlined in the
Land Use Element, were fully implemented (100 ;percent build-ilut).
However, 100 percent build-ilut is an unrealistic assumption
since existing development typically occurs at densities less than the ~imum
permitted density. For example, single family subdivisions on I~ds zones R-
I-IO typically have a density of three or four units per acre, I~ than
the maximum six units per acre
permitted
within the Low
Density Resi1ential land use
category.Housing
Table H-6 outlines more realistic assumptions for build~ut, As the
table indicates, a total of 49,466 units could be provided which represents
an increase of 12,324 units over existing units, If the average household
size remains constant at 2.90 (1990 Census), the population could be expected
to reach 179,266 upon build~
ut.Residential Potential Versus Rel!ional Needs: The 1988 SCAG
preliminary growth projections for Orange indicate that between now and the year
2010,the City's population may increase to between 119,120 and 134,090.
This population will demand 44,079 to 50,660 total housing units. It should
be noted that City of Orange projections apply only to the existing City limits
and do not include unincorporated areas contained within the General Plan
planning area. The 62,701 total housing units (fable H-7) projected to be
provided in Orange will be able to accommodate growth demands predicted
by SCAG.The State has established the following residential density criteria
for providing
unit affordability:Minimum 25 units per acre = very
low income Minimum 18 units per acre =
low income Minimum 8 units per acre =
moderate income As a means of facilitating the creation of very low income housing,
the City will consider the
adoption of:I. An Affordable
Housing Plan 2. An Affordable
Housing Ordinance 3. A revised Zoning Ordinance which would
include density bonus, SRO, 2nd unit criteria and support the
Orange Housing Development Corporation in the development of
low
income housing.Housing Element -
34 8/
TABLEH-
7 AVAILABLE LAND VERSUS HOUSING
GOALS Residential Growth Potential1 RHNA
Goals Income Min.
1989-94 Land Use DUlac Units Category
DUlac Goal Estate
0-2 539 Low2-6 2212 Hil!
h <8 1.505 Low-Medium 6.,lS
2.408 Moderate 8+ 824 Medium
15-24 2408 Low 18+ 877 Mixed Use
unlimited 400 Verv
Low 25+
650 TOTAL 7967 3856 Housinl! Affordabilitv State and Federal standards for housing
overpayment are based on an income-to-housing ratio of 30
percent of median income. Households paying greater than 30 percent of gross income toward
rent or a mortgage will have less income remaining for other necessities
such as food, clothing and health care.In establishing
this standard, governments recognize that upper income households are generally capable of
paying a larger portion of their incomes for housing; therefore,
estimates of
overpayment generally focus on lower income groups.The 1988 RHNA prepared by
SCAG identifies the number of lower income households overpaying for housing. Of the
City's total 14,262 lower income households, 6,017, or 42 percent, are
identified as overpayers. Of these 6,016 households, 1,313 are owners and 4,
704 are renters. Table H-8 provides a breakdown of the distribution of
these totals
among the very low and low income groups.Projected units based on available vacant
land in City
limits as slated in
1989 General
TABLEH-
8 HOUSING OVERPAYMENT BY INCOME GROUP AND
TENURE Owners
Renters Very Low 817 2,
676 Low 495 2,
029 Total 1,312 4,
705 The distinction between renters and owners is important because
homeowners may choose to overextend themselves financially to purchase a home,
retaining the option to sell if necessary. Renters, on the other hand, are limited to
the rental
market.In order to meet the demand for affordable rental housing, the City plans
to make wide use of Section 8 and Section 202 programs. To assist
first-time home buyers with the expensive prospect of purchasing a new home,
the City will use redevelopment set-aside moneys and revenue mortgage
bonds to c0-finance down payments
for income-qualifying
households.Suecial Housim! Needs Certain segments of the population may have a
more difficult time finding decent, affordable housing due to special
circumstances. These special needs households, as defined in the State housing element
law, are "the handicapped,elderly, large households, families with
female heads of households,farmworkers, and families and persons in
need of emergency shelter"Government Code Sec. 65583). Table H-
9 summarizes the housing needs
identified in the following sections.Elderly: The special needs of many
elderly households result from their lower, fixed incomes, physical disabilities,
and dependence needs. The 1990 Census shows that 9,631 seniors (65 years and older)
reside in the City of Orange. Other census statistics indicate that 15.5
percent of the City's households are headed by an elderly person, representing
a total of 5,701 households in 1990; approximately 70 percent of
the City's elderly households are owner-occupants. Between 1980
and 1990, the elderly population in Orange increased by approximately 34
percent, and there is every indication that the need for housing for the elderly will
continue to increase in
the future.
Escalating housing costs, particularly in the rental market, severely impact
housing affordability for the elderly, who are usually dependent on fixed
incomes, The City's Comprehensive Housing Affordability Study (CHAS)
identifies 761 of the City's elderly households as lower income and in need of
rental assistance, and indicates a two-year wait for elderly persons applying
for assistance from the Orange County Housing Authority Section 8
Rental Assistance program. The CHAS has established a goal to provide
rental assistance to 190 lower income elderly households during the fiscal year
of 1991-1992, In addition, the City of Orange has six housing projects
that are targeted toward accommodating the City's lower-
income elderly residents-Community Garden Tower (210 units) Garden Tower
West (122 units),Triangle Terrace (75 units), Orchard Gardens (16 units),
Fern Garden (10 units) and Palmyra
Apartments (10 units).Handicapped: Physical handicaps can hinder access to
housing units of traditional design as well as potentially limit the ability
to earn adequate income. The 1990 Census indicates approximately six percent
of Orange's population has some form of work or
transportation disability. Elderly individuals with transportation disabilities comprise an estimated
43 percent of the City's handicapped. The City's CHAS indicates that there
is a two-year wait for disabled persons applying for assistance
from the Orange County Housing Authority Section 8 Rental
Assistance Program. Special housing needs of handicapped individuals include
accessibility for wheelchairs, railings,ramps, and special construction for interior living
spaces, In order to accommodate these special housing needs, Casa's Del Rio is
an existing 40 unit apartment complex which was constructed under the
Section 202
program for handicapped individuals.Large Families: Large families are identified as a
group with special housing needs based on the limited availability of
adequately sized, affordable housing units. Large families are often of lower income,
frequently resulting in the overcrowding of smaller dwelling units and
in turn accelerating unit deterioration. According to the 1990 Census, more than 14
percent (5,305) of the City's households are large families comprised of
five or more members.The 1990 Census also indicates that 9.6 percent of the
City's households are living in overcrowded conditions (defined as greater than
1.01 persons per room), reflective of households doubling up to reduce
costs or large families unable to afford
units of adequate size.According to the CHAS, 16 percent of
households currently receiving rental assistance are large families. Furthermore, the City'
s CHAS indicates that there are 483 large families in Orange that are lower income
and in
need of rental assistance,Female Heads of Household: Female-headed
households tend to have low incomes, thus limiting housing availability for
this group. The 1990 Census indicates that the City has 3,998
female-headed families, accounting for 11 percent of all households in the City. An
estimated 57 percent of these female-headed families have dependent children
under 18 years of
age, Thus,
providing housing opportunities for female-headed families relates both
to housing affordability and services for the care of
children.Farmworkers: Farmworkers are defined as persons making their
living through seasonal agricultural work and who move with the seasons to
different farming areas or communities. The special housing needs of
many farmworkers arise from their low wages and insecure nature of
their employment. The 1990 Census indicated that less than one percent (891)
of the City's residents are employed in the agriculture, forestry, fisheries
and mining industries. Therefore, special housing needs associated
with farmworkers in Orange are not as significant as other special needs
groups.Housing needs for farmworkers can generally be addressed by
overall programs for housing
affordability.Homeless: Throughout the country, homelessness has become an
increasing problem. Factors contributing to the rise in homeless include the general
lack of housing affordable to low and moderate income persons, increases in
the number of persons whose incomes fall below the poverty level, reductions
in public subsidy to the poor, and the deinstitutionaIization of the mentally
ill.The 1990 Census indicates that there were 159 individuals in
homeless emergency shelters and another II homeless people visible in street
locations in Orange on the date the census was taken. As part of the City's
CHAS,homeless and social service providers were contacted and on-site
observation at shelters and 78 people were observed at
Hart Park.There are relatively few facilities in the City of Orange which are
geared toward serving the homeless population, They include: the EI
Modena Community Center, a 6-unit transitional housing facility to
assist homeless families,Women's Transitional Living Center, (70 beds) Martha
House (single women only), and Casa Teresa Home for Single Mothers. (
Recently construction began for a new shelter which will hold 20 women with children
called House of Hope.) Other homeless shelters in the region include the
YWCA Hotel for Women in Santa Ana" the Thomas House, the Interval
House,
Copes and Sheepfold.Housing
Element - 38
TABLEH-
9 SPECIAL HOUSING NEEDS
SUMMARY Number of Percent of
Total Special Needs Group HouseboldslPersons
HouseboldslPersons 5,701 15.
5 Elderlv
Households 2,3576.
4 Handicanned
Persons 5,30514.
4 Larl!e Familv
Households 3,998 10.
9 Female-
Headed Family,Households
with Children 891
0.
8 Farmworkers 170
0.
2 Homeless TOTAL 18422
48.2 Sources: 1990 U.
S. Census Housing Element -
39 8/
Summary of Past
Housing
Accomplishments
State Housing Element law requires communities to assess the achievements
under adopted housing programs as part of the five year update to their
housing elements. These results should be quantified where possible (e,g.
rehabilitation results), but may be qualitative where necessary (e.g. mitigation
of governmental constraints),
The following sections summarize the City's past housing success by
comparing the goals and housing programs identified in the 1984 Housing
Element to the amount of housing or assistance actually provided. Each of
these goals has been implemented to various degrees through a series of
specific housing programs. The continued appropriateness of each goal for the
updated Housing Element will be evaluated, as well as any applicable tailoring
of housing programs.
The 1984 Orange Housing Element contained eight overall housing goals for
the City. The following sections summarize each goal and assess the City's
success in achieving each goal by describing the programs implemented by the
City.
In the previous element the housing programs, in some cases, had different
names or were placed under different titles. The Revenue mortgage Bond
program is now listed as the First Time Homebuyer Program. See Programs 8
and 16.
The Land Acquisition and Write Down Program: This program was used in
two (2) Senior projects known as the Palmyra and Orchid Gardens. These two
projects produced rental rates for 31 affordable units for 30 years through the
land write down program. The program is continuing to be used into the 89-
94 element period as shown in Program #15.
Goal 1: Assure that the quality, safety, and livability of the housing stock
in the City of Orange is continuously maintained and/or upgraded.
Assistance for the City of Orange Home Improvement Programs is allocated
from Federal Community Development Block Grant funding and Orange
Redevelopment Agency 20% Housing Set-Aside funds, Residents must
have owned their home for at least one year and meet the income
guidelines.Applicants needing to bring their homes into compliance with City code
are given first priority. Senior citizens are encouraged to
apply.6% Low Interest Loan Program (LIL): The City has contracted with a
major lender to provide home improvement loans at a 6% per annum interest
rate.The lender qualifies applicants, and the City subsidizes the interest rate in
a buy-down from the lender's current market rate. The maximum loan
amount is 35,000 and payments are made to the lender for a maximum term of
15 years.Housing Element -
40 8/
Previous element goal: 5 units per year
Actual number of households assisted:
Ym
1984 - 9 1985 -
15 1986 - 1
1987 - 2 1988 ---
2 32 units
assisted which
exceeded the goal of 25.Deferred Payment Loan Program (
DPL): The Deferred Payment Loan Program provides assistance to
applicants who do not qualify through the participating lender for the
Low Interest Loan Program described above.Deferred Payment Loans are
extended subject to a credit review provided there is sufficient equity in
the property.A Deferred Payment Loan
is a direct loan made by the City and secured by a Deed of Trust against
the property. The loan becomes due upon sale,refinancing or transfer of
the property at 2 % per annum or at the close of the IS-year term, whichever
comes first. The maximum loan amount is S25,ooo.Repayment may be
extended for an additional five years if the borrower continues to qualify
as low income. The City cannot subordinate Deferred Payment Loans.Previous
element goal:
10 units per year Actual number of
households assisted:Ym 1984 - 11
1985 -
17 1986 - 8
1987 - 3 1988 -.
ll 52 units
assisted which exceeded
the goalof
50.Homeowner Participation Program (HOPP): The Homeowner Participation Program (
BOPP Rebate) provides assistance for minor improvement
projects for single-family homeowners and mobilehome households. Property
owners receive a percentage rebate of the total
project costs. That percentage rebate is based on income. Households in Level I
may receive a maximum of S2,000,with 50% of the project costs contributed
by the participant. Level 2 households may receive a maximum of SI,
ooo, with 75% of the project costs contributed by participant. Applicants may apply for
rebates for several improvement projects until the maximum assistance amount
is reached.Housing Element - 41 8/93
Previous element goal: 4 units per year
Actual number of households assisted:
Ym
1984 - 10 1985 -
53 1986 - 30
1987 - 17 1988 -..
ll 123 units
assisted which exceeded
the goal of 20.Code Enforcement Grant Program: The
Code Enforcement Grant Program assists those homeowners cited for
code violations who do not have the income to repair the deficiencies. Homeowners
are assisted with a grant to bring property into compliance with City
code requirements. The maximum grant is 5,000 and there is
no repayment required providing homeowners do nnt exceed Level 3 income guidelines.
No goal was stated because
of the nature of the program. According to city records, ten (10) units were
assisted in conjunction with other loan programs such as the DPL program.
However, because of the limitation of the grant amount, ($5,000.00) these
moneys are usually granted in addition to a low interest loan.Housing Accessibility Grant
Program (HAP):
The Housing Accessibility Program (BAP Grant) assists disabled
and elderly residents in making their home environments more accessible. The
Program can be used to improve access to the residence or
provide modifications inside the home. The maximum grant is $1,500
and no repayment is required.Previous element goal: This program
was not previously identified separately in the Housing Element although
it existed.Actual number of households assisted:
Ym 1984 - I 1985 - 4
1986 -
0 1987 - 0
1988 -.1 8
units assisted.Rental
Rehabilitation Program: From
1984 to1989
the City invested
almost 160,000 on 16 units as part of its Rental
Rehabilitation Program. The City has continued to invest an average of $30,000 annually
in this program,assisting 1-3 units each year. The City has also
published a brochure describing the requirements of each rehabilitation program available to
residents. The previous element stated 10 units per year
has not been met because the program was found to be expensive and
not effective. (Program Housing Element - 42 8/93
has now been discontinued.). HUD has discontinued, The City will pursue
HOME funds which can be used to implement a modified version of the
program.
Mobilehome Park Rental Assistance Program: The City assists very low
income mobile home park residents by providing a monthly subsidy payment
between the households monthly housing costs and 30 percent of the
household's income. The City presently has $200,000 in this program and
assists at least 50 residents per year. The City has far exceeded its goals of 25
units per year.
Future Use: HAP, DPL, HOPP, code enforcement, mobile home assistance,
and homeowner rebates remain. appropriate programs for the Orange Housing
Element to help preserve and upgrade existing residential neighborhoods. 20%
set aside funds will be used to rehabilitate apartments when owner requests and
guarantees affordability for 20 or 30 years.
Goal 2: To maintain, preserve, and upgrade the quality of existing
residential neighborhoods.
Section Eight Rental AssistaneeIVouchers: The City of Orange contracts
with the County of Orange Housing Authority (OCHA) to administer the
Federally Funded Rental Assistance programs. According to information from
the Orange County Housing Authority, a total of 539 families (as of August
1992) have been receiving rental housing assistance payments. Almost all (480
or 89 percent) of these were very low income families with 13 (2.4 percent)
being low income families.
Section 8/202 (New Construction: Since 1985, approximately 600 Section 8
units have been available in Orange, an average of 150 per year. An average
of 70 to 80 Section 202 units existed per year in Orange during this same time
period.
The City has facilitated construction of about 230 new Section 8 and Section
202 dwelling units since 1979. Additionally, a lo-unit market rate project
was completed in 1988 with City assistance. For this project, the City acquired
the property and provided it to a developer at a reduced
price.Section 236: Casa Ramon is an apartment project which has 75 assisted
units of which 8 have 3 bedrooms, 41 have 2 bedrooms and the remainder are
one
bedroom,Rehabilitation Programs: In recognition of the need to preserve the City'
s existing housing stock, the City has provided grants and loans to
income-qualifying households for home improvement projects. Between 1985
and 1989, 215 owner-occupied units were assisted (not including
mobile homes).The mobile home and rental rehabilitation programs were described
under
Goal 1.Housing Element -
43 8/
Gramti Removal: In 19&91he City set up a 24 hour telephone hotline for the
public to report incidents of graffiti. The budget for the removal has been
constant at approxirnateIy .$35,000 for salaries and between $5 to $10,000 for
supplies.
As of 1992 the Community Services Department is initiating a comprehensive
program which will establish goals, Objectives and policies for the removal of
graffiti. This plan willllOt. only address the reactive program for the clean up
of graffiti, but will set up proactive programs which will involve the entire
community and provide public awareness. 'The program will also address fund
raisers and ways of involving the community with graffiti removal events. In
the past year, staff has been monitoring the removal program by plotting the
geographical location on maps along with the frequency of service required.
This information will be utilized in the proposed comprehensive program.
Future Use: Housing Rehabilitation Programs, Federal Programs and graffiti
removal remain appropriate programs for the Orange Housing Element to help
preserve and upgrade existing residential neighborhoods.
Goal 3: To encourage and promote development of affordable housing in
order to meet the needs of all residents of the City of Orange, particularly
within the various income ranges.
First Time Homebuyer Program: The City offers deferred interest loans for
first time homebuyers. Starting in 1989, the City provided 11 loans for
165,000 (principal only). The City has continued this program, providing an
additional $990,000 to 53 buyers through FY 1991-
92.Accessory Second Units (formerly known as "Granny Fiat"): In 1984,
the State adopted mandates for Granny Flats, However, the City did not
adopt zoning requirements for accessory second units until 1989. The zoning
code allows for these second units to have kitchens subject to a conditional
use permit which regulates the size of the unit along with setbacks and
parking standards. Since 1984 seven units have been approved and
constructed.Orange Housing Development Corporation (OHDC): OHDC is a
recently formed non-profit housing developer based in the City of
Orange. Start-up costs to establish OHDC were funded through the City'
s Housing Set-Aside funds. OHDC is currently working with
the Orange Redevelopment Agency on the development of two low-income rental
housing projects - a seven-unit family housing project and a 15-unit
senior housing complex on parcels which the Redevelopment Agency owns or
will acquire. Ownership of the parcels will be transferred to OHDC. Target
tenants for both projects are households earning less than 45
percent of the County
median income.
Home Sharing Program: The Home Sharing Program continues to be a
successful-on-going housing program which is operated from the City'
s Senior Centers. The program is administered by 2 part-time
employees which are funded by the Senior Training for Employment
Program (STEP). Records show that on an average 25 applications are accepted each
month with an average of 13 matches made each month. Those numbers
average to 300 applications are made to the program each year
with
156 matches accomplished.Goal 4: To accommodate residents of the City with
special,
unique housing needs.Handicapped Rental Assistance: The Rehabilitation
Institute of Southern California (RIQ) currently owns and manages Casas del RIO, a
40 unit Section 811 project which was constructed with the financial assistance
of the City.Plans call for the construction of 40 additional units
for the handicapped adjacent to the existing Casa del RIO project which will be
named
Casitas del RIO.RIO applied for section 811 funding during the past round.
On September 30,1992 they were given verbal notification that their project
will be awarded funding. Agency staff is interested in providing
additional financial assistance for the proposed project. Housing Set-Aside funds will
be provided in the form of a land write-down for the
project, provided that other necessary
funding sources are in place,Housing Accessibility Program (HAP): This
grant helps the disabled and elderly make their residences more
accessible, with construction of wheelchair ramps installation of grab bars and widening
of doorways as an example.Senior Housing: The 1984 Housing Element indicated that
a total of 115 units over a 5-year period were needed
to meet senior housing needs. Within Orange, approximately 553 units in six
projects were available for seniors with low and very low incomes, as shown in
Table H-I0. The City also contains hundreds of older apartments
and mobile homes, which have historically
been available to seniors at affordable rents.Future Use: Handicapped
housing assistance and new senior housing provided by the OHDC remain appropriate
programs for the Orange Housing Element to help provide affordable housing
for
segments of the population
with special
TableH-
IO Assisted Senior Housing
Projects Proiect Address # of
Units Community Garden Towers 3919 Garden Grove Blvd,
209 Garden Tower West 4001 Garden Grove Blvd.
122 Trianl!le Terrace 555 S. Shaffer
75 Fern Gardens 160 N. ProsDect
10 Orchid Gardens 1051 N. Glassell
16 The Palmvra 301 S. Glassell
15 GoalS: Assure continuation of community awareness for preservation
of historically significant residential
structures.Goal 6: Encourage appreciation and preservation of the City's heritage
in the form of those structures identified in the City's historic
preservation element as historically
significant.The City has several active civic organizations that deal with
historic preservation which concentrate their efforts in preserving locally
significant historical structures, either by rehabilitating them in place or by
relocating them to suitable sites. Most recently, the City's Redevelopment Agency
has been instrumental in relocating a Queen Anne house in the Downtown area to
a site in the nearby City of Tustin. The City's efforts in this regard have
been and will continue to be ongoing, on an as needed
basis.Future Use: Restoration and/or relocation remain appropriate programs
for the Orange Housing Element to preserve locally historic
structures.Goa17: To assure Fair Housing opportunities for all residents of
Orange.The City has worked for many years with the YWCA Dispute
Resolution Center which provides information and support to individuals
on renterlhomeowner options and programs to assure that housing is available
to all segments of the population, including minorities and disadvantaged
groups.During 1991-92 the Dispute Resolution Center received 626
complaints from Orange tenants and landlords. Twenty-four of the complaints
were based upon discriminatory practices. The breakdown by category
was: 8-families with children; I-source of income; 4-
national origin; 9-ethnicity; and 2-other. The cost of
this service was $38,
000 for
Future Use: Participation with the Orange YWCA Dispute Resolution Center
remains an appropriate method for the Orange Housing Element to help assure
fair housing is provided in Orange.
Goal 8: Assure increased energy efficiency through use of energy
conservation measures in homes.
As part of the City's programs, the Building Division monitors energy
conservation improvements to rental and owned units through the issuance of
building permits.
In addition, the City provides information to local residents on energy
conservation programs which are available from the Southern California
Edison Company and the Southern California Gas Company. These utility
companies periodically provide brochures on their energy conservation
programs along with billing materials.
Future Use: Energy rehabilitation and rehates remain appropriate programs
for the Orange Housing Element to increase energy self-
sufficiency.Housing Element - 47
8/93
Assisted
Housing at
Risk of
Conversion
State law requires the City to identify, analyze and propose programs to
preserve housing units that are currently restricted to low-income housing
use and that will become unrestricted and possibly be lost as low-
income housing.This section identifies those units in the City of Orange,
analyzes their potential to convert to non-low income housing uses and analyzes
the costs to preserve and/or replace those units. Goals, policies and
programs to preserve these units are presented later in
this Housing Element.Consistent with State requirements, the following are
included
within the Element:An inventory of restricted low-income housing projects
in the City and
their potential for conversion;An analysis of the costs of preserving and/or
replacing the units "at-risk"and
a comparison of these costs;An analysis of the organizational
and financial resources available for preserving and/or
replacing the units "at-risk"; and Quantified objectives for the number
of "at-risk" units to be
preserved;Programs for preserving the "
at-risk" units.Inventorv of A~sisted Housinr This section identifies all of
the low-income housing units in the City of Orange that are at risk
of converting to market rate housing uses between July 1,1989, and July
1, 1999. This inventory includes all multi-family rental units assisted
under federal, state, and/or local programs, including HUD programs,state
and local bond programs, redevelopment programs, and local in-
lieu fees,inclusionary, density bonus, or direct assistance programs. The inventory covers all units
that are eligible to change to non-low income housing
uses due to termination of subsidy contract, mortgage prepayment, or expiring
use restrictions. The inventory was compiled by interviews with City
staff, the Orange County Housing Authority, HUD, and review
of "Inventory of Federally Subsidized Low-Income Rental Units
at Risk of Conversion"California Housing Partnership Corporation), and "
The Use of Housing Revenue Bond Proceeds - 1990", (California Debt Advisory
Commission).Table H-Il shows the name, location type
of government-assistance, type of affordability controls, and other pertinent information of all
government-assisted projects within the City of Orange. The City
has four publicly assisted housing projects - Casa Ramon, Friendly Center, Community Garden Tower,and
Garden Tower West. Only Casa Ramon is at risk of
converting to market rate
housing between
The Friendly Center owns and manages eight units for senior and disabled
residents. The project was subsidized under the HUD Section 221(0)(3)
market rate program. The Community Garden Tower is a 21o-unit
project developed under the HUD Section236(1)(1) program. All units in this
project are one-bedroom units, Garden Tower West is a senior housing
project with 122 one-bedroom units. Financing for Garden Tower
West was provided through the HUD Section 202 program. Because these
three projects are owned by non -profit organizations, affordability controls
are fairly secure.All of these federally subsidized projects also maintain Section
8 contracts with HUD. The initial rental subsidy contracts for Friendly
Center and Community Garden Tower have already expired, and were renewed for
another five years.The Section 8 contract for garden Tower West will not expire
until the year 2002. As long as these projects remain as low-income
housing pursuant to the regulations on non-profit ownership
of federally subsidized projects, the Section 8 contracts on these projects
are likely to be renewed.Palmyra Apartments is a 5Q-unit
senior housing project financed under the City's Redevelopment
Agency Multi-Family Revenue Bond program. Under this program,
the Redevelopment Agency provides preferential financing in exchange for twenty-year low-
income use restrictions on 20 percent of the units in the project. Use
restrictions on these
low-income units will not expire until the year 2007.Description
of At-Risk Project: Casa Ramon is the only assisted rental housing project in the
City of Orange that is at risk of converting to market rate prior to
July 1, 1999. CasaRamon is a 75-unit project subsidized under HUD's
Section 236(1)(1) program which offers the project owner a
reduced interest mortgage loan. In return for preferential financing, the project is subject
to low-income use restrictions with the option to prepay the loan 20
years later and opt out of the affordability controls. Casa
Ramon consists of 26 one-bedroom, 41 two-bedroom, and 8 three-bedroom
units. The project
was built in 1974
and earliest
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Conversion Potential: Prepayment of Casa Ramon will be regulated by the
provisions of the Low-Income Housing Preservation and
Resident Homeownership Act (LIHPRHA, or Title VI of the National Housing Act
of
1990).Figure H-I illustrates the process for prepayment eligible
projects under LIHPRHA. Under LIHPRHA, owners of prepayment eligible
projects can choose to retain project ownership in exchange for
additional federal incentives, or sell their properties under a voluntary sale
program. Where owners choose to sell, tenants, non-profit and
governmental entities are provided with an exclusive 12-month
negotiating period. Prepayment and conversion of the housing to non-low-income use can
only occur if there is no willing buyer to purchase a project. A Notice of Intent
may be filed up to two years prior to the scheduled prepayment
date to indicate the owner's preliminary decision regarding sale
of property versus stay-in as low-income.Within nine months after filing the
Notice of Intent, the owner must prepare a Plan of Action" for submittal to
HUD. A Plan of Action must include: any proposed changes in
the mortgage or in the regulatory agreements; a description of federal, state,
and local incentives that are being requested as part of the effort to own and
develop the property; and any proposed plans to transfer
the title of the property and/or sell.More specifically,
LIHPRHA provides the owners of eligible projects an opportunity to
receive additional federal incentives for projects, enabling them to raise rents and refinance
a portion of their equity, while extending low-income use restrictions for the
remaining useful life of the project. The useful life of a project refers to the
expected physical life of a building with normal maintenance and repairs, as
well as replacement of utilities such as plumbing.HUD officials have indicated that the
useful life of a building is usually 70 years. Thus, use restrictions will
be extended for an additional 50 years if owners decide to
maintain the projects as low-income under LIHPRHA, HUD will establish standards
and procedures for determining when the useful life of a
building expires, Under LIHPRHA, the difference between the tenants'portion of the rent (30
percent of income) and market rent in Section 236 projects is covered by a
Section
8 contract for both very low and low-income tenants.According to HUD officials,
the owner of Casa Ramon has not yet filed a
Notice of Intent to
indicate the
FIGUREH-
l PROCESS FOR PREPAYMENT EUGIBLE
PROJECTS BUD Projects Subject to LllIPRHA
in
Orange Casa Ramon (Section 236(J)(
1))Project Owner Files Notice of
Intent Option I: Continue low-
income restrictions with
HUD Incentives Option 2: Sell to non-profit
or government entity Option 3: Prepay mortgage
and convert to
market rate
housing 9 Months Project Owner Files
Plan
of Action
Ie OPTION
1 Continue low-income
restrictions with
BUD incentives Rent increases
Additional Section 8 subsidies 241(
f) equity
take-out loan
OPTION 2 Sell
to non-
profit
or government entity 12 months II 6
months
for HUn and Public
Review Renegotiate to extend
income use restriction for
the useful
life
of the building
Negotiations
with HUDfail
No bona
fide offer OPTION 3
Prepay mortgage
and convert to market
rate housing
In addition to the HUD Section 236(J)(I) loan, Casa Ramon also maintains a
Section 8 contract for all 75 units in the project. This initial Section 8 contract
expired on September 30, 1991 and the owner renewed the contract with HUD
for annther five years until 1996. This project is receiving substantially lower
rents than the maximum Fair Market Rents for Orange County or than the
average rents in the City (refer to Table H-12), and can potentially
command higher rents if the owner decides to opt out of the Section 8
program.However, the owner can also request additional financial incentives from
HUD if affordability controls are extended on the project. As long as use
restrictions under the Section 236 mortgage or an approved Plan of Action pursuant
to LIHPRHA are in effect, the Section 8 contract associated with the project
is likely to be
renewed.
TABLEH-12 MONTHLY BASIC RENTS FOR
CASA
RAMON 2)I)
Orange County CasaRamon
Maximum Fair Unit Size Basic Rent
Market Rent One-
bedroom $329 $ 764
Two-bedroom $399 $ 900
Three-
bedroom $
456 $1,125 Source:
Notes:Compiled
by CottonlBeland/Associates,June, 1992.I) Obtained
from
the building manager of CasaRamon.Obtained
from
the Orange
County Housing Authority.Cost Analvsis The following discussion examines both the cost of
preserving the units at risk in the City of Orange, and the costs
of producing new rental housing comparable in size and rent levels to replace the
units which could convert. A cost estimate has been developed for
each option based on information provided from the County Housing
Authority, the project's management company, and development experts. Actual costs
involved in each option will also depend on the rental and real estate market situations
at the time the low-income use
restrictions on the projects
expire.Housing
Preservation Costs: A total of 75 family housing units in Casa Ramon (26
one-bedroom, 41 two-bedroom, and 8 three-bedroom units) are
at risk of converting to non-low-income use. Preservation of the
at risk units can be achieved in different ways: 1) preserve
Casa Ramon as low-income by offering additional federal incentives to the
project; 2) facilitate the transfer of ownership of Casa Ramon to a
non-profit organization; or 3) assist qualified tenants in obtaining Section
8
certificates from the Orange County Housing Authority.Continue
as Low-Income with Federal Incentives: Under LIHPRHA,HUD mortgage
prepayment eligible projects may choose to continue as
low-income in exchange for additional federal incentives. Incentives include: rent
increases.to guarantee an eight percent return on project investment;
additional Section 8 subsidies; and 241(t) equity take-out
loan. Once extended, affordability controls on the project will remain
effective for the remaining useful life (
approximately an additional 50 years) of the project under LIHPRHA.
Under LIHPRHA, HUD has established the Federal Cost Limit to determine a
project's eligibility for fulI federal incentives. As long as Casa
Ramon's annual preservation rent (eight percent return on equity,
debt services on rehabilitation loan and HUD first mortgage, operating
expenses, and reserves combined) does not exceed the Federal Cost Limit, the owner
may file a Plan of Action for full federal incentives.The Federal Cost Limit
is currently set at 120 percent of the Section 8 Fair Market
Rent or 120
percent of the local market area rent,whichever is greater.Using
the Fair Market Rents previously shown in Table H-12
as estimates, annual Federal Cost Limit for Casa Ramon is
approximately 789,168, The actual cost comparison to determine eligibility for
federal incentives will be performed by HUD officials when the owner of Casa
Ramon
files a Notice of Intent and a subsequent Plan of Action.Transfer
of Ownership: Another way to preserve the at-risk
units is to transfer ownership of Casa Ramon
to community-based non-profit or government entity,
such as the Orange Housing Development Corporation or County Housing
Authority. By transferring the ownership of Cas8 Ramon to a non-
profit housing organization, low-income use restrictions can be
secured, and the project will become eligible for a greater
range of government assistance programs.According to development experts, current market value for
a project can be estimated on the basis
of the project's potential yearly income,operating and maintenance expenses, and
building condition. Potential annual income for Casa Ramon is estimated on the
basis of the project'
s unit
adjusted for a five percent vacancy rate. The current market value for
Casa Ramon is estimated to be $4,382,000.
Under LIHPRHA, HUD will provide mortgage loan insurance on an
acquisition loan for up to 95 percent of the equity to priority
purchasers. If, theoretically, Casa Ramon was sold to a qualified non-
profit prior to extending the 2o-year mortgage with the current
owner,a total downpayment of approximately $219,100 and a mortgage
loan of $4,162,900 would be required to transfer ownership to a
non-profit or public agency. Given the good condition of
Casa Ramon,maintenance costs are likely to be low. Therefore, it is
assumed that rental income and HUD Section 8 subsidies will
defray monthly mortgage and
maintenance costs.Rent Subsidy: If all efforts to prevent conversion fail and
the low-income use restrictions on Casa Ramon expire, Section
8 certificates can be used to subsidize the property owners
for extending affordability controls. Under the Section 8 certificate
program, HUD pays owners the difference between what tenants can pay (defmed
as 30 percent of household income) and what HUD and the
local Housing Authority estimate to be Fair Market Rent on
the unit.Section 8 certificates are only available to very
low-income households households earning less than 50 percent of the
County median income. The 1992 HUD median income for Anabeim-
Santa Ana region is $52,700. Assuming the average very low-
income household has an income at 30 percent of the County median
income, the average income of Section 8 recipients in Orange County would
be $15,810. Under these assumptions, monthly housing costs
affordable to Section 8 recipients are estimated to be approximately $395 (
based on HUD's defmition of affordable housing costs as
30
percent of household income).According to the Orange County Housing
Authority, Fair Market Rent is $764 for a one-bedroom unit, $900
for a two-bedroom unit, and 1,125 for a
three-bedroom unit. Thus, the difference between housing cost affordable
to very low-income households and the Fair Market Rent is $369
for a one-bedroom unit, $505 for
a two-bedroom unit, and $730 for a three-bedroom unit.Currently, Casa Ramon
has a Section 8 contract for all 75 units in
the project. Given the bedroom mix of the project,
Section 8 vouchers/certificates required to maintain the affordability of these
units would be approximately $
36,139
Replacement Cnsts: This section analyzes the cost of constructing new low-
income housing units in the City of Orange to replace the 75-unit Casa
Ramon in the City of Orange should it be converted from low-income use. The
cost of developing new housing depends on a variety of factors such as density,
size of units, location and related land costs, and type of construction.
In general,land costs in Southern California are
quite high.Table H-13 shows the average per unit development cost by
unit type in Orange. Based on estimates by City staff, per unit development
cost in Orange is approximately $64,750 for a one-bedroom, $70,000
for a two-bedroom, and 75,250 for a three-bedroom unit. These
estimates are based on a construction cost of $35 per square foot and include $
7,000 of permit processing fees,infrastructure connection fees and impact
fees. Using the permit cost estimates shown in Table H-13, the cost to replace
the 75 assisted units in Casa Ramon would run approximately $5,
155,500,
requiring
a minimum downpayment
of
515,550.TABLEH-13
REPLACEMENT HOUSING COSTS Avcraac Land Conlllruclion Tolal Total Unit
Type UnitSize Co.tlUnit ColllUnit F-ronit ColllllUnit One-bedroom 650"'
1' ft, $35,000 $22,750 $7,000 $64,750 Two-bedroom
800"'1. ft. $35,000 $28,000 $7,000 $70,000 Three-
bedroom 950"'1. ft. $35,000 $
33,250 $
7,000 $75,250 Source: City of Orange, June, 1992.Cost Comnarison The cost to build
new housing to replace the 75 at-risk units is high, with an
estimated total cost of $5,155,500 and an associated downpayment cost
of 515,550. This amount is substantially higher than the $4,
382,000 preservation cost and related $219,100 downpayment under a transfer of
ownership scenario the $
433,668 anoual Section 8 subsidies, or the costs to continue federal
subsidies.HUD is committed to providing subsidies for the
preservation of the federally assisted units, Both transferring project ownership
to non-profit organizations and maintaining
projects as low-income
under existing
Housing
Programs
The goals and policies contained in the Housing Element address Orange's
identified housing needs and are implemented through a series of housing
programs. Housing programs define the specific actions the City will take to
achieve specific goals and policies.
The City of Orange's overall housing program strategy for addressing its
housing needs has been defined according to the following issue areas:
Conserving and improving the condition of the existing stock of affordable
housing.
Providing adequate sites to achieve a variety and diversity of housing.
Assisting in the development of affordable housing.
Removing governmental constraints as necessary.
Promoting equal housing opportunity.
Conservinl! and ImDrovinl! Existinl! Affordable Housinl!
Housing rehabilitation includes major efforts to improve property and
alterations aimed at converting the type or number of units. The goal of
housing preservation is to protect the existing quality and investment in
housing to avoid a degree of physical deterioration that will require a larger
rehabilitation effort to restore quality and value. The accepted age standard for
major housing rehabilitation is after 30 years. In 1990, approximately 29
percent of the City's housing units were over 30 years old, indicating the
potential need for rehabilitation and continued maintenance of a quarter of
housing based on age alone.
In addition to rehabilitation efforts, the City has set a high priority to conserve
Orange's existing stock of affordable housing. Housing conservation programs
contained in the element include programs to monitor units at risk of
converting to market rate and direct assistance to ensure continued subsidies,
Section 8 rent subsidies, and shared housing.
1. Housing Rehabilitation Program: The Rehabilitation Program
represents a major effort to maintain and improve the City's housing
stock. The program provides financial assistance to property owners
applying for home improvement loans. The City currently finances
this program with funds received from the U.S. Department of
Housing and Urban Development (BUD) through its Community
Development Block Grant (CDBG) program. The City increases the
financing power of those funds through the use of a Revolving Fund to
collateralize loans. Property owners with sufficient incomes to sustain
Housing Element - 57 8/
93
reduced-interest payments can obtain CDBG subsidized through
an agreement with Bank of America's City Improvement and
Restoration Program. Eligibility of loans is determined by the applicant's
gross annual household
income.A Housing Needs Assessment was recently completed for
the Redevelopment Agency. In order to concentrate the
rehabilitation effort, the City is studying the assessment which
identifies rehabilitation target areas andestim:rtes the number of units
and potential housing rehabilitation costs within these areas. The
study identifies both primary and secondary target areas for single-
family and multi-
family rehabilitation programs.The study shows that in the primary targeted
single-family areas, EI Modena South and the CypresslLemon
area, there are approximately 1,000 existing units with
rehabilitation needs. Approximately 110 units in El Modena South and 275
units in CypresslLemon require substantial rehabilitation efforts. Four areas
within the City are identified as primary multi-
family rehabilitation target areas -HooverlWilson, AdamslHighland,
KatellalShaffer and Prospect. A significant proportion of the units in
these areas require substantial interior and exterior rehabilitation work. The
City will continue to operate an active housing rehabilitation
program, combined with code enforcement efforts, to upgrade and
maintain its housing stock.The following types of assistance are
available under
Orange's Rehabilitation Program:a. Low Interest Loan: The City has
entered into an agreement with a local lender to process loans at
a designated interest rate currently 6%). A subsidy in the
amount of the difference between the lender's predetermined
rate and the designated interest rate is provided by the
City. The maximum loan amount available to a homeowner is $35,
000 and the maximum loan
term is 15 years.b. Deferred Payment Loan: A direct loan is
made from the City to qualified
owner-occupants for rehabilitation activities,secured by a Deed of Trust
against the property. Principal and interest of 2.00% is due upon sale
or transfer of the property or at the end of 15 years.
The maximum loan amount is owner-occupants
who do not meet participating lender qualifications
under the Low Interest Loan Program.c.
Homeowner Participation Program: Under this program,low and
moderate income owner-occupants are eligible for reimbursement grants
to cover a portion of rehabilitation costs.The City will reimburse
the owner 50 percent of project costs up to $2,000) for
very low income households,
and 25
of the project costs (up to $1,000) for low income households.
This program is funded through CDBG moneys and is targeted
primarily to mobile home owners, although single-
familyowner-<lccupants may be eligible for grants for
minor rehabilitation
projects.d. Housing Accessibility Program: With CDBG funds,
this program provides qualified low and moderate income
owner-occupants with grants of up to $1,500 for modifications
which improve accessibility for disabled persons. Eligible
activities include widening doorways, and installing ramps and
grab
bars.e, Rental Rehabilitation Program: The Rental
Rehabilitation Program offers fixed rate interest subsidy loans or
deferred payment loans to rental property owners to improve
their affordable housing units, Rental assistance is also provided
for eligible tenants through the Orange County Housing
Authority.This program is currently funded through the Federal
Rental Rehabilitation Program Grant and Redevelopment Agency
20 percent Housing Set-
Aside funds.f. Code Enforcement Grant Program: The
Code Enforcement Grant Program assists those homeowners cited
for code violations who do not have the income to
repair the deficiencies. Homeowners are assisted with a grant
to bring property into compliance with City code
requirements. The maximum grant is $5,000 and there is no
repayment required providing homeowners do not exceed Level
3
income guidelines.g. Housing Accessibility Grant Program (HAP):
The Housing Accessibility Program (BAP Grant) assists disabled
and elderly residents in making their home environments
more accessible,The Program can be used to improve access to the
residence or provide modifications inside the home. The maximum
grant is 1,500 and no repayment
is required.Five-Year Program Goals: The City will continue
to utilize CDBG funds to finance the housing rehabilitation
programs and is currently studying the use of affordable housing
20 percent set-aside funds to support future rehabilitation
efforts when the Rental Rehabilitation Program funds are expended.
The City's five-year goal
is to rehabilitate 100 units.2. Enforcement of Uniform Housing
Code: The accepted age standard for major housing rehabilitation is
after 30 years. In 1990,approximately 29 percent of the City's housing
units are over 30 years old, indicating the potential
need for rehabilitation and
continued Housing
maintenance of a quarter of housing based on age alone. During the
1990's an additional 36% of housing in Orange will reach 30 years
old. Currently, City staff perform inspections on residential units upon
request.
The Code Enforcement Program provides grants of up to $5,000 to
eligible low and moderate income owner-occupants of housing
units that fail to meet the California Health and Safety Code or City
Building Code standards. Owners are generally referred to the program by
the Code Enforcement Division. (See 1 - f.)
Eligible activities under the program are minor exterior improvements
such as painting, repair or replacement of doors and windows, and
electrical and plumbing repairs necessary to bring those systems into
compliance with health and safety codes. This program was
established in 1988 as a pilot program and funded through the 20
percent housing set-aside
funds,Five-Year Program Goals: TIle City will strengthen the
program to complete 300 housing inspections per month and
continue to provide information regarding available
rehabilitation assistance.3. Conservation of Existing and Future Affordable
Units: A community's existing affordable housing stock is a
valuable resource which should be conserved, and if necessary, improved
to meet habitability requirements. The City of Orange has
four federally assisted housing projects in its jurisdiction - Casa Ramon,
Friendly Center, Community Garden Tower, and Garden tower West.
Case Ramon is a 7S-unit family housing project developed in 1974
under the HUD Section 236 program. Friendly Center,
Community Garden Tower, and Garden Tower west are non-profit
owned housing projects.Long-term affordability of these three
projects is fairly secured.However, Casa Ramon will be eligible to
convert to market rate housing in 1994 and affordability
controls on the bond-financed Palmyra Apartments will expire in the
year 2007. As appropriate, the City will work with existing and potential owners
as well as tenants to keep these units affordable to lower
income households
and to avoid tenant displacement.a. Financing/Subsidy Resources: One of
the major factors to be considered in formulating programs
to preserve the "at risk"units is the financial
and institutional resources available for such programs. The following
provides a brief overview of those resources, Due to both the
high costs of developing and preserving housing and limitations on
both the amount and uses of funds, a variety of
funding sources may be required.BUD Funds:
Under LIHPRHA, HUD will provide the owner of Casa
Ramon with incentives which
enable Housing
the owner to raise rents and refinance a portion of the
equity, while extending low-income use restrictions
on the project. The difference between the tenant'
s portion of the rent and market rent will be covered
by Section 8 contracts. Should a nonprofit take
ownership of the project, the following HUD incentives would
be
offered:Mortgage insurance for acquisition loan for
95 percent of
equity.Project-based Section 8 contract,
with HUD-subsidized rents set at levels high
enough to provide an eight percent return to
owners who retain the project or to cover debt service
on an acquisition loan for the
new purchaser;Grants to the non-profit buyer
that would fill any gap between fair market
rent or local market rent (whichever
is higher)
and allowable rents.CDBG Funds: Through
the Community Development Block Grant (CDBG) program, HUD
provides funds to local governments for funding a
wide range of community development activities.
CDBG funds have been used for a variety of eligible
purposes, and will continue to be used to
stabilize neighborhoods and preserve and upgrade the existing
housing stock. Use of CDBG funds in Orange in previous
fiscal years has included housing rehabilitation, social
services, and the improvement of public/community
facilities. The City of Orange's CDBG allotment from
HUD for the 1991/1992 fiscal year is $859,000.
The City can potentially direct a portion of the
CDBG funds toward the preservation
of assisted housing.Housing Set-Aside:
The City's Redevelopment Agency has accumulated approximately $
2.4 million in redevelopment housing
set-aside funds, available for future affordable
housing activities. The housing set-aside funds can be used
for a variety of affordable
housing construction and preservation activities including:
land disposition and write-downs, site improvements,
loans, grants, issuance of bonds, land and
building acquisition by Agency, direct
housing construction, housing rehabilitation, rent subsidies,redevelopment
fund, and administrative costs for non-profit
housing corporations. The set-
aside fund
potentially be a significant funding source for the
preservation of assisted housing.
General Revenues: The City does not currently fund
housing programs out of general revenue funds and,
consequently, does not have any general revenue funds
set aside or available for housing.
Orange County Housing Authority Operating
Reserves: Other potential sources of funding are the
operating reserves of housing authorities. The Orange
County Housing Authority currently has roughly $8.5
million . available to provide housing opportunities
throughout the County. This money is subject to some
restrictions and priority is given to projects which
provide for the leverage and recycling of funds.
Orange County Affordable Housing Clearinghouse:
The Orange County Affordable Housing Clearinghouse
is a consortium of lending institutions and community
groups focused on providing funds for affordable
housing through team lending. Sixteen lending
institutions are currently members of the coalition.
Because the coalition is new and is still in the process
of being set up, it does not currently have a track
record in the.community. However the financial assets
and expertise of coalition members suggest that this
should be a significant source of funds for low-
income housing in Orange County in the
future.b. Administrative Resources: An alternative to
providing subsidies to existing owners to keep units available as
low-income housing is for public or non-profit agencies
to acquire or construct housing units to replace "at-risk"
units lost to conversion, Non-profit
ownership assures the future availability of purchased units
as low-income housing. Several public and non-profit
agencies are currently active or have expressed an interest
in purchasing and/or managing at-
risk,low-income housing projects
in Orange County.Orange Housing Development Corporation (
OHDC):OHDC is a recently formed non-profit housing
developer based in the City of Orange. Start-up
costs to establish OHDC were funded
through the City's redevelopment housing
set-aside funds. OHDC is currently working with
the Orange Redevelopment Agency on the development of
two low-income rental housing projects - a seven-unit
family housing project and
a IS-
the Redevelopment Agency owns or will acquire.
Ownership of the parcels will be transferred to OHDC.
Target tenants for both projects are households earning
less than 45 percent of the County median income.
Orange County Community Housing Corporation
OCCHC): OCCHC is the oldest and largest non-
profit affordable housing developer in Orange County.
With assets exceeding $6.6 million, OCCHC has been
involved in 14 housing projects for very low-
income large families throughout Orange
County.Developments by OCCHC include: I)
Domingo Avenue Apartments (28 units), Newport Beach;
2)Berry Street Apartments (4 units), Anabeim;
3)Coffield Apartments (24 units), Dana Point; 4)
Irvine Condominiums (6 units), Irvine; 5) Buena
Street Apartments (28 units), Garden Grove; and 6)
Keel Street Shelter (8 units), Garden Grove.
OCCHC participates in the management as well as
the development of low-income housing and
has expressed interest in purchasing/managing "at
risk" units throughout Orange County. Contact:
Allen Baldwin
714) 558-6006.Civic Center Barrio
Housing Corporation: Civic Center Barrio Housing
Corporation also has considerable experience in, and
resources for, the development and or
management of low-income housing. Barrio Housing owns
and operates over 130 housing units in Orange County
and San Diego County and has been involved in the
development of over 400 affordable units. Barrio Housing has
staff of three fuIl-time employees and has
been operating in Orange County for 16
years. Representatives from Barrio Housing indicate that
the corporation would be interested in preserving
at-risk units throughout Orange County.
Contact: Alana Baker (714) 835-0406.Council of
Orange County, Society of Saint Vincent de Paul: The
Society of Saint Vincent De Paul provides many
social services in Orange County such as food
distribution and medical services. The Society is also in
the process of developing a congregate housing project
in Orange County and plans to continue
to expand its housing operations. Including the value of donated time
and goods, the Society has an annual revenue of $9.8
million and employs a staff of 75 persons.
The Society has expressed
interests in
preserving at-risk housing in Orange County.
Contact:Scott Mather (714)
633-9195.HomeAid: HomeAid is a
non-profit corporation established by the Building
Industry Association of Southern California 10 help
alleviate the homeless problem in the region. The HomeAid
program has a dual focus: to construct or renovate
shelters for the transitionally homeless and to develop
housing for low and very low income
families and individuals.Discussion with representative
of HomeAid indicates that this agency is very interested
in preserving at-risk
housing in Orange County.Projects completed or in progress
in Orange County by HomeAid include: 1) Thomas
House (Garden Grove) -refurbishing of an eight-
unit apartment building for homeless families; 2)
Interval House (central Orange County) - rehabilitation and upgrading
of an existing home for battered women and their
children; 3) New Vista Shelter (Fullerton) - rebuilding of
an apartment building for homeless families; 4) Don R.
Roth Family Center (Orange) - construction of three new
duplexes for homeless families; 5) Anchor House (
San Clemente) - rehabilitation of a duplex for homeless
families; 6) Anaheim Interfaith Shelter (Anabeim) -refurbishing
and expansion of a single-family home for
homeless families; 7) Huntington Youth Shelter
Buntington Beach) - refurbishing of a historic farmhouse
and addition of 12 new bedrooms for a facility
to house homeless and runaway teens; 8) Santa Ana
YWCA Second Stage Housing (Santa Ana) -refurbishing of
a four-unit apartment building for homeless
women and their children; 9) Friendship Shelter (
Laguna Beach) - refurbishing and enlarging of a detached
home to provide shelter for homeless men and women;
and 10) Precious Life Shelter (north Orange County) -
expansion and rehabilitation of a home for unwed
mothers and their newborn babies,Contact: Elisha Back (
714) 247-0420.c. Quantified
Objectives: A total of 75 units in Casa Ramon are at risk
of converting to non-low-income use prior 10 July 1,
1999. It is the objective of the City to either retain or replace
as low-income housing all 75 at-risk units in the
City. A comparison of current costs of preservation
and current potential resources available indicates that preservation
of the at risk" units may be feasible. The City will
continue to Housing Element -
64 8/
pursue new opportunities to replace low-income restricted
units lost through conversion to market rate
units.d. Programs for Preservation: The City plans to monitor "
at risk" housing units to ensure units will not be lost as
low-income housing. The following are specific actions that
the City will take to protect or replace "at risk"
units.Monitor units at Risk: Regularly monitor the
status of Casa Ramon. Pursuant to Government Code
Section 65863.10, the City will inform the tenants of the
status of Casa Ramon at least one year in advance of
the potential conversion
date.Time Frame: The earliest
potential conversion date for the
75-unit Casa Ramon is
February I,1994. The city will
inform the project's tenants at
least one year prior to
this date.Responsible Agency:
Community
Development Department Funding Source:
Department Administrative
Budget, CDBG.Working with Potential
Priority Purchasers:Establish contact with public and
non-profit agencies interested in purchasing and/or managing
units at risk to inform them of the status of
Casa Ramon. Where feasible, provide technical
assistance to these organizations with respect
to financing. Coordinate with the Orange
County Affordable Housing Clearinghouse in assisting priority
purchasers
to obtain financing,Time Frame: Establish contact
by
end of 1992.Responsible
Agency:
Community Development Department Funding
Source: Department Administrative Budget,
CDBG, Housing
Set-Aside Fund.Housing
Element - 65
Facilitate Tenant Purchase of Units: Tenant purchase
of at-risk units may become a preservation option if
the owner of Casa Ramon files a "Notice of Intent"
which indicates a desire to sell or prepay the project,
or negotiations between the owner and HUD fail
to preserve the project as low-income housing.
The City will facilitate tenant purchase of the
project by providing technical assistance in
financing, organizing a tenant association as a
priority purchaser,coordinating with non-profit
housing organizations, and encouraging tenant participation
in the prepayment process. The City will begin working
with the Orange County Affordable Housing
Clearinghouse to establish a program to provide
preferential financing, and potentially downpayment
assistance, for low-income tenants wishing
to purchase their units.Time Frame:
Begin coordination with
the Orange County Affordable
Housing Clearinghouse by
the end of 1992.
Responsible
Agency: Community Development Department Funding Source:
HOPE and HOME
grants,CDBG,
Orange County
Affordable Housing Clearinghouse,
Housing Authority Operating Reserves.Tenant Education: The City will
work with tenants of units at risk of converting.
The City will provide tenants with
education regarding potential tenant purchase of Casa Ramon and act
as a liaison between tenants and
nonprofits potentially involved in constructing or
acquiring replacement housing. The City will also provide
tenants in at-risk projects information regarding
Section 8 rent subsidies through
the Orange County Housing Authority.Time Frame:At
least one year prior
to
subsidy termination for Casa
Ramon.
Responsihle Agency: Community Development
Department Housing
Funding Source:Department administrative
Budget, CDBG.
Encourage Project Owners to Participate in Section
8 Program: If detailed analysis and negotiation with
the owner of Casa Ramon indicates that long-term
rent restrictions cannot be secured on the units, the
City will encourage the owner to participate in the Section
8 certificate program. The City will act as the
liaison between the County Housing Authority and the
owner of Casa
Ramon.Time Frame: Continually monitor status
of extension of low-
income use restrictions and
encourage the owner of Casa
Ramon to participate in
the County Housing Authority
Section 8 certificate
program immediately upon notification
of the owner's decision
to discontinue
low-income use.Responsible
Agency:
Community Development Department Funding
Source:
Department Administrative Budget.Assist Tenants of Existing
Rent-Restricted Units to Obtain Priority Status on
Section 8 Waiting List:The Orange County
Housing Authority has established three categories of priority
applicants to receive Section 8 certificates: 1) evicted
or homeless households; 2)households living in substandard
housing units; and 3)households paying more than 50
percent of income
for rent and utilities.Time Frame:
Continually monitor status of
extension of low-income use
restrictions and assist tenants
to apply for
priority status immediately upon notification of
the owner's
decision to discontinue low-
income
use.Responsible Agency: Community
Development Department
Funding Source:Department Administrative
Budget.
Five-Year Program Goals: The goal of this program Is to
conserve the long-term affordability of existing and future units
in Orange.This will be accomplished by the following actions:
1) developing an early warning system for subsidized units with the
potential to convert to market rate; 2) providing continued public
subsidy as available to units which are eligible to convert to market
rate; 3)maintaining, where feasible, a minimum thirty-
year term of affordability for affordable units;
4) maintaining affordability through deed restriction, 5)retaining for the City the
first option to purchase affordable units; and by 1994 the City
will have attempted to retain the 7S units at
risk (Casa Ramon).4. Mobilehome Rental Assistance Program: The
City of Orange provides rental assistance to very low
income mobilehome park residents paying more than 50 percent of their
income on housing costs. The program provides monthly rental
assistance to eligible residents equal to the difference between the
household's monthly housing costs and 30 percent
of their income.This program is currently funded through
Housing Set-Aside funds from the Southwest and Northwest
Redevelopment project areas. The Department of
Community Development, Economic Development Division, administers this program
for the Redevelopment Agency.
Housing Element -
Five-Year Program Goals: The City will continue to offer
rental assistance to at least 25 income-eligible
mobilehome occupants provided that the program is deemed to be
economically feasible and funding
is available.S. Section 8 Rental Assistance Program Housing
Vouchers: The section 8 rental assistance program extends rental subsidies
to low income family and elderly which spend more than 30% of
their income on rent. The subsidy represents the difference between the
excess of 30% of the monthly income and the fair market rent.
The voucher program is similar to the Section 8 Program,
although participants receive housing .vouchers" rather than certificates.
Vouchers permit tenants to locate their own housing. Unlike the
certificate program,participants are permitted to rent units beyond the
federally determined fair market rent in an area, provided the tenants pay the
extra
rent increment.The City's Comprehensive Housing Affordability
Strategy identifies that between the fiscalyears 1991/92 and 1995/96, there will be
4,768 lower income renter households in need of rental assistance.
As of February 1, 1991, there were 496 households in
Orange receiving assistance under this program. Given the long program
waiting list,the Orange County Housing Authority is no
longer
accepting applications.Five-Year Program Goals: The city has
established a one-year program goal to continue providing
rental assistance to 496 households through OCHA and
will aggressively pursue additional Section 8 housing certificates and vouchers in
the future. The City will also facilitate use of the program
in its jurisdiction by encouraging apartment owners to list available
rental units
with the Housing Authority.6. Home Sharing: The City's Senior
Center operates a home sharinglhome finding service intended to
match lower income, single householders with similar persons seeking to
share housing costs. This service benefits the elderly in particular by
allowing them to reduce housing costs and to have another person in a
home who may help meet the special physical needs of the elderly. The
City of Orange's Shared Housing Program is administered hy
the Orange Senior Center through 2 part time employees (20 hours a week)
which is funded by the Senior Training for Employment Program (STEP),
The STEP is a federally funded program which
employs low income seniors.Five-Year Program Goal: The
City will advertise the shared housing program through placement
of program brochures in key locales throughout the community and continue
to make at
least U matches per
month.Housing
7. Reverse Mortgage: The City offers a fixed-term reverse
mortgage referral program. A fixed-term reverse mortgage
allows older homeowners the opportunity to borrow out home equity
with no repayment until the end of the designated term.
The homeowner receives a steady stream of monthly income for
a predetertnined number of years, at the end of which the total loan
amount (principal and deferred interest) is paid back, generally with proceeds
from the sale of
the home.The City's reverse mortgage program is funded from
Housing Set-Aside funds and offered through a local savings
bank. Eligible participants are City residents 70 years of age or
older. Counseling services are available as part of the program to assist
the homeowner with questions and reviewing possible
alternative options.Five-Year Program Goal: The City will continue
to coordinate with the lending institution and Inform senior residents
of the reverse mortgage programs available. The City will
also continue to provide technical assistance
to Interested seniors.8. first-TIme Homehuyer Program: The
City offers a First-Time Homehuyer Program administered
by the Department of Community Development, Economic
Development Division, and funded
through the Housing Set-Aside funds,The program assists eligible low
and moderate income families in the City to purchase their
first home by providing down payment assistance. This assistance takes the
form of a deferred payment, low interest loan secured by a second deed
of trust. The amount of the loan may be up to ten percent of the
purchase price of the home, but not to exceed $22,500. The loan is for a
period of 15 years at an interest rate of eight percent (
8.00%). Payments come due beginning in the sixth year of the loan period. If the
home is sold prior to the tenth year of the loan, the
program participant must pay to the Redevelopment Agency a percentage
of
the equity accrued in the property.Five-Year Program Goal:
The City will continue to utilize Housing Set-Aside funds to support
this program
in the amount of $
200,000 per year.Provision Of Adeouate Sites A key element in satisfying
the housing needs of all segments of the community is the provision of adequate
sites for housing of all types, sizes and prices. This is an
important
function in both zoning
and General
9. Land Use ElemenUZoning Ordinance: Planning and regulatory
actions to achieve adequate housing sites offering a range of housing
types and styles include the Land Use Element of the General Plan and
the Zoning Ordinance. A variety of residemial types is provided for in
Orange ranging from 0,1 to 24 units per acre, with higher densities
achievahle through density bonus provisions. The residential
development capacity under the existing Land Use Plan is adequate to
meet the City's share of regional housing needs, which have been
identified as 3,857 units through July, 1994.
Five-Year Program Goal: The City goal will be to provide
zoning at appropriate densities which will provide the opportunity
for developers to help fulfill the regional housing needs. Prior to
July of 1994 the City will initiate efforts to amend the General Plan
to include a Medium High Density category. This Medium
High Density category would allow densities of 2S to 36 units to the
acre.Available sites would be identified along with site
suitability
criteria.10. Multiple Family Development Sites: There are additional sites
within the City which would be suitable for affordable multiple
family developments as
follows:a. Depot
Area The City is in the process of adopting a specific plan for a 42.
8 gross acre area of land surrounding the Santa Fe depot.
This plan is known as the Santa Fe Depot Area Specific Plan (
SFSP)and is located four blocks west of the downtown
Orange Historic Plaza Area. One of the factors for creating this plan
is that the Southern California Regional Rail Authority (SCRA)
is including Orange as a commuter rail stop at the Santa Fe
Depot site. Adjacent to the depot is a 10 acre site which
presently exists as a manufacturing area, This area has been identified
as a site where some senior and low/moderate income
housing could be constructed along with conventional housing.
This site is part of the Northwest Redevelopment Area which
means that site development assistance along with
other redevelopment assistance programs could be offered to
the private sector. It is projected that 250 units could
be accommodated on this proposed site. The SFSP sets out
design guidelines and development standards for this
area.Five Year Program Goal: Upon completion of the SFSP, the
City will pursue the relocation of the Anaconda
Manufacturing properties and make Redevelopment Funding and
relocation assistance available to the
owners.b. Commercial Mixed
Use Housing Element - 71
8/93
Two shopping centers which are zoned Commercial with
tremendous development possibilities for low and moderate
income housing are the "'fOWII and Country" and "The City"
Shopping Centers. The City's zoning code allows residential
development in conjunction with commercial development
suhject to a conditional use permiL The "ToWII and Country"
is presently developed with single story retail stores, offices
and at grade parking which tends to convey underutilization of
these parcels. This 15 acres site has public transportation,
shopping facilities, educational facilities and would lend itself
to more intense development with possibly mid-rise
and parking structures. The area surrounding is developed
with mid and high rise structures, with a variety of adjacent
land uses: office tOwers, hospitals, medical offices,
commercial retail, education facilities and other residential (multi
family)communities. Immediate access is available to both the SR
22 Freeway and 1-5 Freeway. The Orange
County Fixed Guideway is proposing a nearby station area while
local buses run frequently on Main Street, the major arterial that
fronts the ToWII
and Country. "The City" Shopping Center complex is
presently developed with single story retail stores (mall), at grade
parking, several high-rise office buildings, restaurants,
movie theaters, and several hotels. This site is approximately
60 acres with development potential because of the under
utilized mall with at grade parking (similar situation as ToWII
and Country). The complex is surrounded by the UCI
Medical Center, Medical offices, Lihrary Administrative Offices,
Orange County Family and Juvenile Courts and other county facilities,
There are also existing multiple family neighborhoods in
the area. Immediate access is available to the SR 22 Freeway
and nearby 1-5 Freeway, The Orange County Fixed
Guideway is proposing a nearby station area while local transit
buses run frequently on nearby Chapman and City Drive
which are major arterials.This site would lend itself to mid rise
or high rise structures for low and moderate
income, multiple family development.No density caps have been imposed
on these
two shopping center complexes.Five Year Program Goal: The City
will investigate the possibility of cooperating with the property OWller&
to initiate future housing projects in conjunction with the other
multi use faci6ties. These Mixed Use Areas are part of the
City's Redevelopment Plan,therefore redevelopment assistance programs could
be offered
to the private sector.11. Site Suitability Criteria: Low
and moderate income housing development should be located on sites which
are not only physically
Housing Element -
adequate but also suitable for such development. These aims can be
facilitated by establishing a set of "site suitability criteria" by which to
evaluate the merits of potential project sites for low and moderate cost
housing. Criteria for affordable housing could be implemented through
the City's Zoning Ordinance. Criteria for evaluating the suitability of
sites may include the following:
Services available to the sites (e.g., public transportation,
essential shopping facilities, educational facilities, etc.)
Neighborhood characteristics (e.g., adjacent land uses,
proximity to employment opportunities, environmental
considerations, etc.)
Physical aspects of the site (e.g., topography, off-
site improvements;
etc.)Five-Year Program Goal: The City will continue to
utilize the California Environmental Quality (CEQA) process to
evaluate the suitability of housing sites for affordable
housing developments.12. Sites for Homeless SheltersrI'ransitional Housing: The City'
s CHAS estimated there were 178 people accommodated in
homeless shelters and 78 homeless people were observed at Hart Park. For
the fiscal year 1991/92, the City has committed $98,000 CDBG
grants for homeless services, Organizations receiving these funds
are: St.Vincent de Paul's Food Distribution Center; EI
Modena Service Committee; Mariposa Women's Center; Orange County
Youth and Family Services; and the Women's Transitional
Living Center.Emergency shelters and transitional housing facilities are allowed
in R-2-6, R-2-7, R-2-8, R-3,
R-4, C-
l, C-2, C-3 zones; all with a
conditional use permit.Five-Year Program Goals: The City
will continue to support efforts by non-profits to expand the
transitional and temporary housing units with support services in the
City. The City will investigate the possibility of using
the Shelter Plus Care program which
links supportive services to rental assistance
for homeless persons with disabilities and their families.Assist In Development
Of Affordable Housine New construction is a major source of housing
for prospective homeowners and renters, However, the cost of new
construction is substantially greater than other program categories. Incentive programs,
such as density bonus,
offer a
Public sector support for new construction includes the following programs for
low and moderate income housing development..
13. Affordable Housing Plan: City staff members are currently preparing
an Affordable Housing Plan which will identify a comprehensive
program to provide adequate housing for all residents of the City of
Orange, The plan will focus on providing a variety of housing
affordable to all segments of the community. The plan is intended to
be an "action plan" identifying how the City will meet its housing
needs and serve as an implementation vehicle addressing "affordable"
housing needs.
The proposed plan covers City Housing Goals, an assessment of
current housing needs,. an assessment of existing housing conditions
and implementation policies.
Staff will present various available implementation vehicles to the City
Council for their consideration and adoption which will include the
following recommendations:
A. Development Approval Processing:
1. Assistance to developers before application is formally
reviewed by interdepartmental committee
Environmental Review Board).
2. Expedited reviews and approvals through a Housing
Development Coordination Office.
3. Use of administrative hearings in lieu of City Council
hearings. Many matters relating to development now
come before a hearing officer (Zoning Administrator),
leaving the City Council free to deal with issues that
involve policy. Administrative hearings can be used
for zoning adjustments and other minor permits.
4, Housing Policy Manual. Several city departments have
published policy manuals that are made available to
builders and developers as unified sources of
information.
s. "Accelerated" Processing. Projects can be processed
by the developer in an accelerated time span by the
plan check section of the Building Division.
6. Development Fee Deferral. Development fees can
be deferred until a Certificate of Occupancy is
issued rather than when the permit is pulled.
Housing Element - 74 8/
93
B. Zoning Relief:
1. Possible reductions in building setbacks; private
open space; parking space requirements and
dwelling unit size.
2. Allowing density bonus greater than 25%; mixed
use projects with housing development in addition
to commercial and office uses.
C. Site PlanninglDesign:
Designing residential projects as follows:
1. Encourage site plans that increase density while
still providing minimal open space.
2. Support "rero-lot-line" and
HZ"
configurations!sub-division.3.
Support clustering arrangements.Five-Year Program Goal: The City goals will
be to finalize this plan and implement it prior to the completion
of
the new element cycle.14. Affordable Housing Ordinance: The City
will consider the adoption of an "Affordable Housing Ordinance" which
would allow for the development of owner and renter
occupied affordable housing units.This ordinance would provide incentives
for the orderly development of affordable owner and renter occupied
housing units consistent with community policies and values. The intent
would be to provide regulatory incentives to ensure that housing will
be produced at a reduced cost expressively for low
and moderate income households.Some of these incentives
or concessions could include:1) Waiver of planning review fees,
development fees and/or building plan
check and permit fees.2) Reduction in site development standards
such as lot coverage,building setbackslheights,
parking
requirements, open space requirements.3)
Allowing mixed use projects 4) Allow larger
than 25% density bonus.
Housing Element -
Density Bonus: Pursuant to State density bonus law, if a developer
allocates at least 20% of the units in a housing project to lower income
households, 10% for very low income households, or at least 50% for
qualifying residents" (e.g. seniors), the City must either 1) grant a
density bonus of 25 %. along with one additional regulatory concession
to ensure that the housing development will be produced at a reduced
cost, or b) provide other incentives of equivalent financial value based
upon the land cost per dwelling unit. The developer shall agree to and
the City shall ensure continued affordability of all lower income
density bonus units for a minimum 30-year
period.Five-Year Program Goals: The City is in the process
of developing a density bonus ordinance and an affordable
housing ordinance which will define "additional regulatory concessions" to
be offered.As a means of encouraging developers to take advantage
of our housing programs, the City will develop informational
brochures on the density bonus and affordable housing programs.
The handout will be provided to residential development applicants
and made available at the public counter and
Housing Agencles.15. Land Assemblage and Write-Down: The City can
utilize both CDBG and redevelopment moneys to write-down the cost
of land for the development of low and moderate income housing.
The intent of this program is to reduce land costs to the
point that it becomes economically feasible for a private developer to
build units which are affordable to low and moderate income households.
As part of the land write-down program, the City may
also assist in acquiring and assembling property and
in
subsidizing on-site and off-site improvements.Five-Year Program
Goals: The City has identified two target sites for the
development of affordable housing within the five-year time
frame of the Housing Element where
the Redevelopment Agency will assist in land cost write-
downs.The Redevelopment Agency has recently purchased a property at 1515
East Walnut and Intends to transfer ownership to
the Orange Housing Development Corporation (OHDC) to develop
seven three-bedroom, two-bathroom rental units for large families.
In addition, the agencies in the process of purchasing
a clty-owned parce1located on Pixley Street and Almond Avenue. The
Agency also intends to transfer ownership of
this parcel to OHDC to develop 15 one-bedroom, one-
bathroom senior apartments. Both projects will be targeted for
very low income households earning less than 45 percent
of the County median income.Through the Redevelopment Agency, the
City will make every
reasonable effort
residential projects affordable to very low and low income
households.
16. Mortgage Revenue Bond Financing: At this time the Orange
Redevelopment Agency does not utilize the affordable housing 20
percent set-aside funds for the multi-family revenue
bond program.Under this program, tax-exempt bonds are issued to
provide funds for construction and mortgage loans to encourage
developers to provide rental housing. However, developers are encouraged
to contact the County of Orange to
obtain bond financing.Five-Year Program Goal: Bonds
provide a cost effective mechanism the City . am utilize
to promote affordable rental opportunities. The City will
encourage prospective developers to take advantage of available bond financing
through
the County of Orange.The City will initiate and complete a
study to evaluate the possibility of adopting an ordinance
to provide Incentives for housing projects to set aside affordable units.
The City will also continue to study the feasibility of
adopting an "Affordable Housing Plan" which would Implement all of the
City's proposed
and existing housing programs.17. Non-Profit
Housing Development Corporation: A non-profit housing development
corporation (BDC) promotes, assists, or sponsors housing for low
and moderate income people. The Orange Redevelopment Agency has funded
the creation of the Orange Housing Development Corporation (OHDC)
with the goal of expanding the supply of low and moderate income
housing in the City. OHDC can sponsor and develop a project, or
work with other non-profit or private developers. OHDC strives
to achieve maximum leverage of its funds through use of multiple
funding sources on private, State, and Federal levels. In addition to OHDC,
the City has developed the following list of non-profit housing
developers who are active in
the local area:Orange County
Affordable Housing Clearinghouse Orange County
Community Housing Corporation Civic Center Barrio Housing Corporation Council of
Orange
County, Society of St.
Vincent de Paul HomeAid Southern California Presbyterian Homes The City of Orange will
continue to augment and refine this list of non-
profit developers for purposes of soliciting
their involvement in affordable
housing construction
These and other non-profit corporations can help meet the goals
for additional housing by implementing or assisting with
the implementation of programs described in this
element.Five-Year Program Goals: 1be City will support the efforts
of non-profit organizations and citizen groups to facilitate the
provision of low cost housing. 1be City will principally accomplish
thIs by working with OHDC or other non-profits to
focus on the construction of lower Income
housing. Particularly In Redevelopment Agency sponsored housing projects,
the City will solicit the participation of non-profit developers
as a mechanism of ensuring the long-
term affordablIity of the project.18. Pursue
Affordable Housing Funding Sources: Successful implementation of Housing
Element programs to create affordable housing will depend on a variety of
State, Federal, and local funding sources. The National Housing
Affordability Act, signed by the President in November 1990, creates
several new major sources of funds for housing, including HOPE
and HOME. In addition, several State programs have been funded
which offer assistance to jurisdictions in implementing programs for affordable
housing. The City of Orange will begin actively pursuing these
State and federal funding
sources.a. Federal Funding Sources Home Program: The HOME
program was created under the National Housing Affordability
Act of 1990. Under HOME,HUD will award funds to localities on
the basis of a formula which takes into account tightness
of the local housing market,inadequate housing,
poverty, and housing production costs.HOME funding is provided
to jurisdictions to assist either rental
housing or homeownership through acquisition,construction, reconstruction,
and/or rehabilitation of affordable housing. Also
possible is tenant-based rental assistance,property
acquisition, site improvements, and other expenses related to the provision
of affordable housing and for projects that serve a group identified
as having special needs related tn housing.
The local jurisdiction must make matching contributions to affordable housing
and for projects that serve a group identified as
having special needs related to housing.The local
jurisdiction must make matching contributions to affordable housing
under HOME on the following sliding scale: 25 % local
share for rental assistance or rehabilitation,33 % for
substantial
rehabilitation, and 50% for
new construction.
Homoownership of Multifamily Units (HOPE 11): Eligible
applicants for this program include resident management
corporations, resident councils, cooperative associations, public
or private non-profit corporations, and public bodies,
including public housing authorities. This program has two
parts:Planning Grants:These grants are intended to
help applicants develop
homoownership programs such as development
of resident management
corporations tenant and homebuyer counseling
job training planning for
economic development self sufficiency
activities and
others.Implementation Grants: These grants may be used for
activities to carry out homoownership
programs in rental properties. Activities
include architectural work, acquisition
of eligible properties, rehabilitation of
any property covered by the
program,relocation oftenants who elect
to move, implementation of a
replacement housing plan, and
others.Matching funds of 33 percent are required from non-
Federal sources,and income eligibility and resale
restrictions apply.HOPE for Homoownership of Single Family Homes (
HOPE llI):Eligible applicants for this program include
private non-profit organizations, cooperative associations, and
public agencies. Similar to HOPE II, this program
has two parts:Planning Grants:These grants are intended to
help applicants to develop
homeownership programs, including the identification
of eligible properties,feasibility
studies, homebuyer counseling,planning for
economic development, job training, self-
sufficiency activities and others.Implementation Grants: These grants may be used
for activities to carry out
homeownership programs related to government
single family homes. Activities include
acquisition of properties, rehabilitation of properties,
relocation costs, and others.Matching funds of 33 percent are
required from non-Federal sources,and income
eligibility and resale restrictions
apply.Housing
b. State Funding Sources
As part of Housing Element implementation, Orange will
research available state housing funding sources. The
following State housing programs have been identified for
evaluation:
California Homeownership Assistance Program (equity
sharing mortgage participation loans)
California Housing Rehabilitation Program - Owner Component
California
Housing Rehabilitation Program - Rental Component Proposition
84
Housing Funds Proposition 77
Housing Funds California Housing
Finance Agency Construction New
Ave-
Year
Program Goal: The City will pursue the possibility of forming
a consortium with other communities in Orange County to apply
for HOME funds. Also, to augment the existing first time homebuyer
programs in Orange, the City will pursue the possibility of
applying for HOPE II and III planning or implementation moneys.
The City will research identified State funding sources and
evaluate which State programs would most effectively address the
City's housing needs. The City will utilize its newsletter, as well as
coordinate with the local chapter of BIA, to advertise funding availability
to the development community.Housing
Element - 80 8/93
Removal Of Governmental Constraints
Under present State law, the Orange Housing Program must address, and
where appropriate and legally possible, remove governmental constrains to the
maintenance, improvement, and development of housing. The following
programs are designed to lessen governmental constraints to housing
development.
19. Zoning Ordinance: The Orange Zoning Ordinance allows a variety of
housing types ranging from single family residences to high density
apartments and mixed use projects. This variety in housing works
towards fulfilling the housing needs of all segments of the population.
The following Orange Zoning Ordinance facilitate the development and
conservation of affordable housing.
Provision for residential units within commercial zones
Provision for second units
Regulations pertaining to condominium conversions
Incentives for senior housing
The City's Zoning Ordinance allows for the development of multi-
family residential units in the Low Medium (R-3, R-2-
6, R-2-7, R-2-8)and Medium Density (R-3
and R-4) zones. The variety of uses is
utilized to establish a transition between residential and commercial
uses. Commercial zoning allows for higher density multi family
development in conjunction
with retail commercial subject to a conditional use permit.Five-
Year Program Goals: Continue to monitor the City'
s Zoning Ordinance to ensure standards do not
excessively constrain affordable residential development. Adopt a new revised zoning ordinance
by the end of the element cycle which would establish
new density bonus, criteria, second
units criteria and provisions for Single Room Occupancy (SRO) Housing.20.
Development Fees: Various fees and assessments are charged by the City
to cover the costs of processing permits and providing services and facilities. While
almost all these fees are assessed on a pro rata share system,
they often contribute to the cost of housing and constrain the development
of lower priced units. The reduction of City fees
can
lower residential construction costs and, ultimately, sales and rental prices.Five-
Year Program Goals: In an effort to assist in the
development and rehabilitation of affordable housing, the City will study the possibility
of granting a partial fee waiver
for project's with
units set
21. Expedited Project Review and Hearing Process: A community's
evaluation and review process for housing projects contributes to the
cost of housing because holding costs incurred by developers are
ultimately reflected in the unit's selling price.
Five-Year Program Goals: The City will continue to implement
a one-stop review process whereby the development review
process is coordinated throughout all departments for the
purpose of expediting development review. The City will also study
methods of streamlining the hearing process for affordable
housing projects.The City's goal is to have this process established by the
end
of 1993.PromoteKaual
Housin!!" Oooortunities In order to make adequate provision for the housing needs of
all economic segments of the community, the housing program must include
actions that promote housing opportunities for all persons regardless of race,
religion, sex,family size, marital status, ancestry, national origin, color, age
or physical disability, More generally, the program component entails ways and
means to promote equal
housing opportunity.22. Fair Housing: The City of Orange contracts with the
YWCA of Central Orange County to provide the service of responding
to and investigating housing disputes, and claims of
housing discrimination.The Dispute Resolution Center of Orange County also serves
as a liaison between City residents and the State Department
of Fair Employment
and Housing,Five-Year Program Goals: The City will continue
to contract with the Dispute Resolution Center of Orange
County and Central Orange County YMCA to ensure open housing
practices for all residents. The City will encourage affirmative
marketing on all residential projects, and will require developers
to advertise to under-represented minority groups to
indicate the availability of housing units which
meet affordable housing requirements.
Housing Element -
I
38
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