Portola Municipal Code Ch. 17.43 Residential Density Bonuses

Footnotes:

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Editor's note— Ord. No. 352, § 1, adopted Nov. 28, 2018, amended Ch. 17.43 in its entirety to read as herein set out. Former Ch. 17.43, §§ 17.43.010—17.43.040, pertained to similar subject matter, and derived from Ord. 289 § 2 (Exh. A (part)), 2002.

The regulations set forth in this chapter apply in Medium Density Residential (MDR), High Density Residential (HDR), and Commercial Mixed Use (CMU) zoning districts.

(Ord. No. 352, § 1, 11-28-2018)

In accordance with Cal. Gov't Code §§ 65915, 65915.5, 65915.7, and 65917, this chapter is intended to provide incentives for the production of housing for very low income, lower income, and senior households and for the production of housing for moderate income households residing in condominium and planned development projects. In enacting this chapter, it is also the intent of the City of Portola to facilitate the development of affordable housing and to implement the goals, objectives, and policies of the city's housing element.

(Ord. No. 352, § 1, 11-28-2018)

A. Subject to the findings included in Section 17.43.110, the city shall grant a twenty percent density bonus to a developer of a housing development who seeks a density bonus and agrees to construct at least one of the following and any additional replacement housing units required by subsection D of this section:

1. Ten percent of the total units of the housing development as target units affordable to lower income households; or

2. Five percent of the total units of the housing development as target units affordable to very low income households; or

3. A senior citizen housing development. The density bonus for a senior citizen housing development is limited to twenty percent of the number of senior housing units.

B. Subject to the findings included in Section 17.43.110, the city shall grant a five percent density bonus to a developer of a housing development who seeks a density bonus and agrees to provide all of the following and any additional replacement housing units required by subsection D of this section:

1. Ten percent of the total units in the housing development as target units for sale to moderate income households at an affordable sales price; and

2. The housing development is a common interest development; and

3. All of the dwelling units in the housing development are offered to the public for sale.

C. Subject to the findings included in Section 17.43.110, the city shall grant a density bonus of 20 percent of the type of units listed in subsection C.1 of this section to a developer of a housing development who seeks a density bonus and agrees to provide all of the following and any additional replacement housing units required by subsection D of this section:

1. Ten percent of the total units in the housing development for transitional foster youth, as defined in Cal. Educ. Code § 66025.9; disabled veterans, as defined in Cal. Gov't Code § 18541; or homeless persons, as defined in the federal McKinney-Vento Homeless Assistance Act (42 U.S.C. 11301 et seq.); and

2. The units described in subsection C.1 of this section are subject to a recorded restriction requiring that the units remain affordable to very low income households for fifty-five years.

D. Replacement housing shall be provided on a site which meets both of the following conditions:

1. Rental housing is now located or was located on the site at any time in the five-year period preceding the date of submittal of the density bonus application; and

2. The rental housing is or was, during that five-year period:

a. Subject to a recorded covenant, ordinance, or law restricting rents to levels affordable to very low and lower income households;

b. Subject to any form of public rent or price control; or

c. Occupied by very low or lower income households.

A housing development subject to this subsection D is not eligible for a density bonus, incentive, concession, waiver, or modified parking provided by this chapter unless the proposed housing development contains one of the following, whichever results in a greater number of affordable units:

i. The percentage of target units specified in subsections A, B, or C of this section; or

ii. The replacement affordable units specified in Cal. Gov't Code §§ 65915(c)(3)(B) and (C).

E. The density bonus for which the housing development is eligible shall increase if the percentage of very low income, lower income, or moderate income target units is increased, as follows:

1. For each one percent increase above ten percent in the percentage of units affordable to lower income households, the density bonus shall be increased by one and one-half percent up to a maximum of thirty-five percent.

2. For each one percent increase above five percent in the percentage of units affordable to very low income households, the density bonus shall be increased by two and one-half percent up to a maximum of thirty-five percent.

3. For each one percent increase above ten percent of the percentage of units affordable to moderate income households, the density bonus shall be increased by one percent up to a maximum of thirty-five percent.

When calculating the maximum residential density and the number of permitted density bonus units, any calculations resulting in fractional units shall be rounded to the next larger integer.

F. The density bonus units shall not be included when determining the number of target units required to qualify for a density bonus. When calculating the required number of target units, any calculations resulting in fractional units shall be rounded to the next larger integer.

G. The developer may request a lesser density bonus than the project is entitled to, but no reduction will be permitted in the number of required target units pursuant to subsections A through D of this section. Regardless of the number of target units, no housing development may be entitled to a density bonus of more than thirty-five percent.

H. Each housing development is entitled to only one density bonus, which may be selected based on the percentage of either very low income target units, lower income target units, or moderate income target units, the project's status as a senior citizen housing development, or the project's provision of housing for transitional foster youth, disabled veterans, or homeless persons. Density bonuses from more than one category may not be combined.

I. Subject to the findings included in Section 17.43.110, when a developer seeks a density bonus, the city shall grant incentives or concessions listed in Section 17.43.100 as follows:

1. One incentive or concession for projects that include at least ten percent of the total units for lower income households, at least five percent for very low income households, or at least ten percent for persons and families of moderate income in a common interest development.

2. Two incentives or concessions for projects that include at least twenty percent of the total units for lower income households, at least ten percent for very low income households, or at least twenty percent for persons and families of moderate income in a common interest development.

3. Three incentives or concessions for projects that include at least thirty percent of the total units for lower income households, at least fifteen percent for very low income households, or at least thirty percent for persons and families of moderate income in a common interest development.

J. In accordance with state law, neither the granting of a concession or incentive nor the granting of a density bonus shall be interpreted, in and of itself, to require a general plan amendment, zoning change, or other discretionary approval.

K. The following tables summarize this information:

Density Bonus Summary Table

Incentives/Concessions Summary Table

(Ord. No. 352, § 1, 11-28-2018)

A. When a developer of a housing development donates land to the city as provided in this section and meets the requirements of Section 17.43.030.D, the developer shall be entitled to a fifteen percent increase above the otherwise allowable maximum residential density for the housing development. For each one percent increase above the minimum ten percent land donation described in subsection B.2 of this section, the density bonus shall be increased by one percent, up to a maximum of thirty-five percent. This increase shall be in addition to any increase in density allowed by Section 17.43.030, up to a maximum combined density bonus of thirty-five percent if a developer seeks both the increase required pursuant to this section and Section 17.43.030. When calculating the allowable maximum residential density and the number of permitted density bonus units, any calculations resulting in fractional units shall be rounded to the next larger integer.

B. A housing development shall be eligible for the density bonus described in this section if the city makes all of the following findings:

1. The developer will donate and transfer the land no later than the date of approval of the final subdivision map, parcel map, application for the housing development, or first building permit, if no map is required.

2. The developable acreage and zoning classification of the land being transferred are sufficient to permit construction of units affordable to very low income households in an amount equal to at least ten percent of the number of residential units of the proposed development, or will permit construction of a greater percentage of units if proposed by the developer.

3. The transferred land is at least one acre in size or of sufficient size to permit development of at least forty units, has the appropriate general plan designation, is zoned with appropriate standards to allow development at a density of at least thirty units per acre, and is now or at the time of construction will be served by adequate public facilities and infrastructure. No later than the date of approval of the final subdivision map, parcel map, application for the housing development, or first building permit, if no map is required, the transferred land will have all of the permits and approvals, other than building permits, necessary for the development of the very low income housing units on the transferred land.

4. The transferred land and the very low income units constructed on the land will be subject to a deed restriction ensuring continued affordability of the units consistent with this chapter, which restriction will be recorded on the property at the time of transfer.

5. The land will be transferred to the city, other public agency, or to a housing developer approved by the city. The city reserves the right to require the developer to identify a developer of the very low income units and to require that the land be transferred to that developer.

6. The transferred land is within the boundary of the proposed housing development. The transferred land may be located within one-quarter mile of the boundary of the proposed housing development; provided, that the city additionally makes all of the findings included in Section 17.43.040.B.

7. A proposed source of funding for the very low income units shall be identified no later than the date of approval of the final map, parcel map, application for the housing development, or first building permit, if no map is required.

(Ord. No. 352, § 1, 11-28-2018)

A. When a developer proposes to construct a commercial development and has entered into a partnered housing agreement approved by the city, the city shall grant a commercial development bonus mutually agreed upon by the developer and the city. The commercial development bonus shall not include a reduction or waiver of fees imposed on the commercial development to provide for affordable housing.

B. The partnered housing agreement shall include all of the following provisions:

1. The housing development shall be located either on the site of the commercial development or on a site within the city that is within one-half mile of a major transit stop and is located in close proximity to public amenities, including schools and employment centers.

2. At least thirty percent of the total units in the housing development shall be made available at affordable ownership cost or affordable rent for low-income households, or at least fifteen percent of the total units in the housing development shall be made available at affordable ownership cost or affordable rent for very low income households.

3. The commercial developer must agree either to directly build the target units; donate a site consistent with subsection B.1 of this section for the target units; or make a cash payment to the housing developer for the target units.

C. Any approved partnered housing agreement shall be described in the city's housing element annual report as required by Cal. Gov't Code § 65915.7(k).

(Ord. No. 352, § 1, 11-28-2018)

A. When a developer proposes to construct a housing development that includes target units as specified in Sections 17.43.020.A through D and includes a child care facility that will be located on the premises of, as part of, or adjacent to the housing development, the city shall grant either of the following if requested by the developer:

1. An additional density bonus that is an amount of square feet of residential space that is equal to or greater than the amount of square feet in the child care facility.

2. An additional concession or incentive that contributes significantly to the economic feasibility of the construction of the child care facility.

B. A housing development shall be eligible for the density bonus or concession described in this section if the city makes all of the following findings:

1. The child care facility will remain in operation for a period of time that is as long as or longer than the period of time during which the target units are required to remain affordable pursuant to Section 17.43.080.

2. Of the children who attend the child care facility, the percentage of children of very low income households, lower income households, or moderate income households shall be equal to or greater than the percentage of dwelling units that are proposed to be affordable to very low income households, lower income households, or moderate income households.

3. Notwithstanding any requirement of this section, the city shall not be required to provide a density bonus or concession for a child care facility if it finds, based upon substantial evidence, that the community already has adequate child care facilities.

(Ord. No. 352, § 1, 11-28-2018)

A. The city shall grant either a density bonus or other incentives of equivalent financial value if the applicant for a condominium conversion agrees to provide thirty-three percent of the total units of the proposed condominium project as target units affordable to lower or moderate income households, or to provide fifteen percent of the total units in the condominium conversion project as target units affordable to lower income households, and to provide any replacement affordable units required by Section 17.43.030.D. All such target units shall remain affordable for the period specified in Section 17.43.080.B.

B. For purposes of this section, a "density bonus" means an increase in units of twenty-five percent over the number of apartments to be provided within the existing structure or structures proposed for conversion. "Other incentives of equivalent financial value" shall not be construed to require the city to provide a cash transfer payment or other monetary compensation of any type but may include, at the city's discretion, modification of requirements that the city might otherwise apply as conditions of approval.

C. No condominium conversion shall be eligible for a density bonus if the apartments proposed for conversion constitute a housing development for which a density bonus or other incentives were previously provided pursuant to this chapter or Cal. Gov't Code § 65915.

D. Nothing in this section shall be construed to require the city to approve a condominium conversion.

(Ord. No. 352, § 1, 11-28-2018)

A. Target units shall be constructed concurrently with market-rate units or pursuant to a schedule included in the density bonus housing agreement. No temporary or permanent certificate of occupancy for any new market-rate unit in a housing development or for commercial space in a commercial development shall be issued until permanent certificates of occupancy have been issued for the required target units unless explicitly permitted by the density bonus housing agreement or partnered housing agreement.

B. Target units offered for rent to lower income and very low income households shall be made available for rent at an affordable rent. Target units offered for sale to very low, lower, or moderate income households shall be sold at an affordable ownership cost. All target units offered for rent shall remain restricted and affordable to the designated income group for a minimum period of fifty-five years. All target units offered for sale shall remain restricted and affordable to the designated income group for a minimum period of thirty years. A longer period of time may be specified if required by any construction or mortgage financing assistance program, mortgage insurance program, or rental subsidy program applicable to the housing development.

C. Provisions for the continued affordability of target units shall be consistent with those specified in Section 17.43.080.

D. Target units shall be built on-site, unless off-site construction is approved pursuant to Section 17.43.040 or 17.43.050, and shall be dispersed within the housing development. The number of bedrooms of the target units shall be equivalent to the bedroom mix of the market-rate units in the housing development, except that the developer may include a higher proportion of target units with more bedrooms. The design and appearance of the target units shall be compatible with the design of the total housing development. Housing developments and commercial developments shall comply with all applicable development standards, except those which may be modified as provided by this chapter.

(Ord. No. 352, § 1, 11-28-2018)

A. If a housing development is eligible for a density bonus, upon the request of the developer, the city shall not require a vehicular parking ratio, inclusive of handicapped and guest parking, that exceeds the following ratios:

1. Zero to one bedroom: one on-site parking space.

2. Two to three bedrooms: two on-site parking spaces.

3. Four and more bedrooms: two and one-half parking spaces.

B. For certain other housing developments that are eligible for a density bonus, upon the request of the developer, the city shall not require a vehicular parking ratio, inclusive of handicapped and guest parking, that exceeds the ratios shown in the following table. However, if the city, at its cost, has conducted an area-wide or city-wide parking study in the last seven years, then the city may find, based on substantial evidence, that a higher parking ratio is required than shown in the following table. In no event may the required parking be greater than the ratio provided in subsection A of this section. The parking study must conform to the requirements of Cal. Gov't Code § 65915(p)(7).

C. If the total number of parking spaces required for a development by this section is other than a whole number, the number shall be rounded up to the next whole number. For purposes of this section, a development may provide "on-site parking" through tandem parking or uncovered parking, but not through on-street parking.

(Ord. No. 352, § 1, 11-28-2018)

A. Incentives or concessions that may be requested pursuant to Sections 17.43.030.I and 17.43.060.A, may include the following:

1. A reduction of site development standards or a modification of zoning code requirements or architectural design requirements which exceed the minimum building standards provided in Cal. Health and Safety Code Division 13, Part 2.5 (commencing with § 18901) and which result in identifiable and actual cost reductions to provide for affordable ownership costs or affordable rents, including, but not limited to:

a. Reduced minimum lot size and/or dimension.

b. Reduced minimum lot setback.

c. Reduced minimum outdoor and/or private outdoor living area.

d. Increased maximum lot coverage.

e. Increased maximum building height and/or stories.

f. Reduced minimum building separation requirement.

g. Reduced street standard, such as reduced minimum street width.

2. Approval of mixed-use development in conjunction with the housing development if nonresidential land uses will reduce the cost of the housing development and if the city finds that the proposed nonresidential uses are compatible with the housing development and with existing or planned development in the area where the proposed housing development will be located.

3. Incentives for affordable units listed in Section 17.43.040.A.

4. Modifications of those development standards included in Section 17.43.080.D.

5. Deferred development impact fees (e.g., capital facilities, park land in lieu, park facilities, fire, or traffic impact fees).

6. Other regulatory incentives or concessions proposed by the developer or the city which result in identifiable and actual cost reductions to provide for affordable ownership costs or affordable rents.

B. Developers may seek a waiver or modification of any development standard that will physically preclude the construction of a housing development meeting the criteria of Sections 17.43.030.A through D at the density or with the concessions or incentives permitted by this chapter. The applicant shall bear the burden of demonstrating that the development standards that are requested to be waived will have the effect of physically precluding the construction of the housing development with the density bonus and incentives.

C. Nothing in this section requires the provision of direct financial incentives for the housing development, including but not limited to the provision of financial subsidies, publicly owned land, fee waivers, or waiver of dedication requirements. The city, at its sole discretion, may choose to provide such direct financial incentives.

(Ord. No. 352, § 1, 11-28-2018)

A. An application for a density bonus, incentive, concession, waiver, modification, modified parking standard, or commercial development bonus pursuant to this chapter shall be submitted with the first application for approval of a housing development or commercial development and processed concurrently with all other applications required for the housing development or commercial development. An applicant shall be informed whether the application is complete consistent with Cal. Gov't Code § 65943. The application shall be submitted on a form prescribed by the city and shall include at least the following information:

1. Site plan showing total number of units, number and location of target units, and number and location of proposed density bonus units.

2. Summary table showing the maximum number of units permitted by the zoning and general plan excluding any density bonus units, proposed target units by income level, proposed bonus percentage, number of bonus units proposed, and total number of dwelling units proposed on the site.

3. Tenure (rental versus for-sale) of target units and proposals for ensuring affordability.

4. A description of all dwelling units existing on the site in the five-year period preceding the date of submittal of the application and identification of any units rented in the five-year period. If dwelling units on the site are currently rented, income and household size, if known, of all residents of currently occupied units. If any dwelling units on the site were rented in the five-year period but are not currently rented, the income and household size, if known, of residents occupying dwelling units when the site contained the maximum number of dwelling units.

5. Description of any recorded covenant, ordinance, or law applicable to the site that restricted rents to levels affordable to very low or lower income households in the five-year period preceding the date of submittal of the application.

6. Description of any requested incentives, concessions, waivers or modifications of development standards, or modified parking standards.

7. For all incentives and concessions except mixed-use development, to establish eligibility for the requested incentives and concessions, the application shall include evidence that the requested incentives and concessions result in identifiable and actual cost reductions, including the actual cost reduction achieved through the incentive, and evidence that the cost reduction allows the applicant to provide affordable rents or affordable ownership costs.

8. If a mixed-use building or project is proposed as an incentive, the applicant shall provide evidence that nonresidential land uses will reduce the cost of the residential project, and that the nonresidential land uses are compatible with the residential project and the existing or planned surrounding development.

9. For waivers or modifications of development standards, the application shall provide evidence that the development standard for which the waiver is requested will have the effect of physically precluding the construction of the housing development with the density bonus and incentives requested.

10. If a parking reduction is requested, a table showing parking required by the zoning ordinance and proposed parking. If a parking reduction provided by Section 17.43.090.B is requested, evidence that the project is eligible for the requested parking reduction.

11. If a density bonus or concession is requested for a land donation, the application shall show the location of the land to be dedicated and provide evidence that each of the findings included in Section 17.43.040.B can be made.

12. If a commercial development bonus is requested for a commercial development, the application shall include the proposed partnered housing agreement, the proposed commercial development bonus, and evidence that each of the standards included in Section 17.43.050.B has been met.

13. If a density bonus or concession is requested for a child care facility, the application shall show the location and square footage of the child care facilities and provide evidence that each of the findings included in Section 17.43.060.B can be made.

14. If a density bonus or incentive is requested for a condominium conversion, the application shall provide evidence that all of the requirements found in Section 17.43.070 can be met.

B. An application for a density bonus, incentive, concession, waiver, modification, modified parking standard, or commercial development bonus for a housing development or a commercial development pursuant to this chapter shall be considered by and acted upon by the approval body with authority to approve the housing development or commercial development within the timelines prescribed by Cal. Gov't Code §§ 65950 et seq. Any decision regarding a density bonus, incentive, concession, waiver, modification, modified parking standard or commercial density bonus may be appealed to the planning commission and from the planning commission to the city council. In accordance with state law, neither the granting of a concession or incentive, nor the granting of a density bonus, shall be interpreted, in and of itself, to require a general plan amendment, zoning change, variance, or other discretionary approval.

C. Before approving an application for a density bonus, incentive, concession, waiver, modification, or commercial development bonus, the approval body shall make the following findings, as applicable:

1. A finding that the housing development is eligible for the density bonus and any incentives, modified parking, or waivers requested and includes any replacement affordable units required by Section 17.43.030.D.

2. A finding that any requested incentive will result in identifiable and actual cost reductions to provide for affordable rents or affordable ownership costs based upon the documentation provided by the applicant.

3. If the density bonus is based all or in part on donation of land, the findings included in Section 17.43.040.B.

4. If the density bonus, incentive, or concession is based all or in part on the inclusion of a child care facility, the findings included in Section 17.43.060.B.

5. If the incentive or concession includes mixed-use development, the findings included in Section 17.43.100.A.2.

6. If a waiver or modification is requested, a finding that the development standards for which the waiver is requested would have the effect of physically precluding the construction of the housing development with the density bonus and incentives permitted.

7. If the density bonus, incentive, or concession is based all or in part on a condominium conversion, a finding that the project complies with the requirements of Section 17.43.070.

8. If a commercial development bonus is requested, a finding that the project complies with the requirements of Section 17.43.050, that the city has approved the partnered housing agreement, and that the bonus has been mutually agreed upon by the city and the commercial developer.

D. If a request for a concession or incentive is otherwise consistent with this chapter, the approval body may deny a concession or incentive only if it makes a written finding, based upon substantial evidence, of one of the following:

1. The concession or incentive does not result in identifiable and actual cost reductions to provide for affordable rents or affordable ownership costs.

2. The concession or incentive would have a specific adverse impact upon public health or safety or the physical environment or on any real property that is listed in the California Register of Historical Resources, and there is no feasible method to satisfactorily mitigate or avoid the specific adverse impact without rendering the development unaffordable to lower and moderate income households.

3. The concession or incentive is contrary to state or federal law.

E. If a request for a waiver or modification is otherwise consistent with this chapter, the approval body may deny a waiver or modification only if it makes a written finding, based upon substantial evidence, of one of the following:

1. The waiver or modification would have a specific adverse impact upon health, safety, or the physical environment, and there is no feasible method to satisfactorily mitigate or avoid the specific adverse impact without rendering the development unaffordable to lower and moderate income households.

2. The waiver or modification would have an adverse impact on any real property that is listed in the California Register of Historical Resources.

3. The waiver or modification is contrary to state or federal law, which may include a finding that the development standards for which the waiver is requested would not have the effect of physically precluding the construction of the housing development with the density bonus and incentives permitted.

F. If a density bonus or concession is based on the provision of child care facilities, the approval body may deny the bonus or concession if it finds, based on substantial evidence, that the city already has adequate child care facilities.

(Ord. No. 352, § 1, 11-28-2018)

A. If any density bonus, incentive, concession, waiver, modified parking, or commercial development bonus is approved pursuant to this chapter for a housing development, a density bonus housing agreement shall be made a condition of the discretionary planning permits. The density bonus housing agreement shall be a legally binding agreement between the applicant and the city to ensure that the requirements of this chapter are satisfied and shall be binding on all future owners and successors in interest. The density bonus housing agreement may be combined with the affordable housing agreement and other documents required by Chapter 17.43. The executed density bonus housing agreement shall be approved by the city attorney and shall be recorded against the housing development or the commercial development, as applicable, prior to final or parcel map approval, or, where a map is not being processed, prior to issuance of any building permit for the housing development or commercial development.

B. The density bonus housing agreement for a housing development or commercial development shall include, but not be limited to the following:

1. The total number of units approved for the housing development, the number, location, and level of affordability of target units, and the number of density bonus units.

2. Standards for determining affordable rent or affordable ownership cost for the target units.

3. The location, unit size in square feet, and number of bedrooms of target units.

4. Provisions to ensure affordability in accordance with Sections 17.43.080.B and C.

5. A schedule for completion and occupancy of target units in relation to construction of market-rate units or construction of the commercial development, as applicable.

6. A description of any incentives, concessions, waivers, reductions, modified parking, or commercial development bonus being provided by the city.

7. A description of remedies for breach of the agreement by either party. The city may identify tenants or qualified purchasers as third party beneficiaries under the agreement.

8. Procedures for qualifying tenants and prospective purchasers of target units.

9. Financing of ongoing administrative and monitoring costs.

10. Other provisions to ensure implementation and compliance with this chapter.

C. In the case of for-sale housing developments, the density bonus housing agreement shall include the following conditions governing the sale and use of target units during the applicable use restriction period:

1. Target units shall be owner-occupied by eligible very low, lower, or moderate income households, or by qualified residents in the case of senior citizen housing developments.

2. The purchaser of each target unit shall execute an instrument approved by the city and to be recorded against the parcel, including such provisions as the city may require to ensure continued compliance with this chapter.

D. In the case of rental housing developments, the density bonus housing agreement shall provide for the following:

1. Procedures for establishing affordable rent, filling vacancies, and maintaining target units for eligible tenants;

2. Provisions requiring verification of household incomes;

3. Provisions requiring maintenance of records to demonstrate compliance with this subsection; and

4. The developer's agreement that the restrictions on rents are consistent with the Costa-Hawkins Act (Cal. Civ. Code §§ 1954.51 through 1954.535).

E. Density bonus housing agreements for child care facilities and land dedication shall ensure continued compliance with all conditions included in Sections 17.43.060 and 17.43.040, respectively.

(Ord. No. 352, § 1, 11-28-2018)