San Clemente
Housing Element 2000
06/ 05/ 02
CITY OF SAN CLEMENTE
HOUSING ELEMENT
OF THE
GENERAL PLAN
2000
San Clemente
Housing Element 2000
06/ 05/ 02
ACKNOWLEDGEMENTS
The revised Housing Element was prepared for the City of San Clemente by the staff of the
Community Development Department.
City Staff
James S. Holloway Community Development Director
James B. Hare, City Planner
Leslie Davis, Housing Coordinator
In addition, the Housing Element Advisory Committee ( HEAC) was appointed by the City Council
in 1996 to assist in the preparation of the Housing Element and provide input on behalf of the
economic segments and of the housing interests of the community. The Community Development
Department would like to thank them for their contributions.
Housing Element Advisory Committee
Susan Ritschel – Chair ( 1996 Planning Commission representative)
Steve Apodaca – Vice Chair ( 1996 Committee Mayor)
Councilman Pat Ahle ( City Council alternate)
Mark Schmitt( Planning Commissioner alternate)
Robb Steel ( 1996 HEAC Vice Chair)
Leslie Whitlinger ( Human Affairs Committee)
Al Rajput ( Human Affairs Committee, alternate)
Citizens at large:
Sandy Condello
Juan Jasso
Mary La Husen
Lila Lieberthal
Ruth Yeilding, Senior Citizen representative
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Table of Contents
HOUSING ELEMENT REVISION 2000- EXECUTIVE SUMMARY
1.0 Introduction 1
2.0 Scope and Contents 1
3.0 City of San Clemente Housing Goals 2
4.0 Summary of Needs Assessment 2
5.0 Regional Housing Needs Assessment ( RHNA) 3
6.0 Policy and Programs 3
INTRODUCTION TO THE HOUSING ELEMENT
1.1 Purpose of the Housing Element 7
1.2 Overview 7
1.3 Citizen Participation 7
1.4 State Housing Element Requirements 8
1.5 Consistency of General Plan and other Housing Plans 9
1.6 Sources of Information 9
NEEDS ASSESSMENT, OPPORTUNITIES AND CONSTRAINTS
2.1 City Profile 13
2.2 Housing Needs 14
2.21 Housing Needs from Population Growth 14
2.211 Residential Land Use Inventory 15
2.212 Housing Growth Trends and Opportunities/ Annexation Program 16
Ranch Development Opportunities 1999- 2005 18
Talega Annexation Program 19
In- fill Development Opportunities 1999 - 2005 21
2.213 Population and Housing Projections 23
2.214 Regional Housing Needs Assessment ( RHNA) 24
2.215 Residential Development Potential and Regional Housing Needs 25
2.216 Quantified Objectives for Construction, Rehabilitation, and Conservation 27
2.217 Public Services and Facilities 29
2.22 Housing Needs Due to Deterioration of Dwellings 30
2.23 Housing Needs Due to Population Characteristics and Special Needs Households 30
2.231 Age and Household Size 31
2.232 Income and Housing Affordability 32
2.233 Employment 34
2.234 Special Needs Housing 36
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2.235 Overcrowding 40
2.236 Summary of Needs Assessment 40
2.3 Equal Opportunity Housing 42
2.4 Coastal Housing 42
2.41 Redevelopment Project Area 43
2.5 Energy Conservation 44
2.6 Housing Constraints and Mitigating Opportunities 45
2.61 Governmental Constraints and Opportunities 45
2.611 Land Us e Controls 46
General Plan Policies 46
Zoning Designations and Overlay Districts 47
Growth Controls 49
Permit Processing 51
Enforce laws and codes 53
Mitigating Opportunities for Land Use Controls 53
2.612 Building, Electrical and Plumbing Codes 55
Constraints 55
Mitigating Opportunities 56
2.613 Code Compliance Programs 56
Constraints 56
Mitigating Opportunities 56
2.614 California Environmental Quality Act 57
Constraints 57
Mitigating Opportunities 57
2.615 California Coastal Act and Regulations 57
Constraints 57
Mitigating Opportunities 58
2.616 Article XXXIV – California Constitution 58
2.62 Market Constraints and Opportunities 58
2.621 Cost of Land 59
Constraints 59
Mitigating Opportunities 60
2.622 Cost of Construction 61
Constraints 61
Building Area
61
Mitigating Opportunities 61
2.623 Financing
62
Constraints
63
Mitigating Opportunities 64
2.63 Environmental Constraints and Opportunities 69
2.7 Summary of Preservation of Assisted Housing 71
EVALUATION OF THE 1989 HOUSING ELEMENT
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3.1 Effectiveness 73
3.12 Evaluation of Inclusionary Housing Program 73
3.2 Progress 77
3.21 Accomplishments 77
3.3 Appropriateness of Policies and Programs 79
GOALS, POLICIES AND PROGRAMS
4.1 Introduction 83
4.2 State Housing Goals 83
4.3 City of San Clemente Housing Goals 83
4.4 Policies 84
4.41 Policies for Construction 84
4.42 Policies for Rehabilitation 85
4.43 Policies for Conservation 85
4.44 Policies for Administration 85
4.45 Policies for Affordable Housing 86
4.5 Program Implementation 87
4.51 Construction Programs 87
4.52 Rehabilitation Programs 89
4.53 Conservation Programs 90
4.54 Administration 91
4.55 Affordable Housing Programs 95
4.6 Program Priorities 98
4.7 Program Descriptions 98
4.71 Neighborhood Revitalization 99
4.712 Neighborhood Pride Program 99
4.713 Home Rehabilitation Program 99
Home Rehabilitation Program Qualifications 100
Types of Funds Available 100
4.72 Redevelopment Agency ( RDA), Affordable Housing Program 101
Redevelopment Agency Five Year Implementation Plan 102
4.73 Inclusionary Housing Program 105
4.74 Inclusionary Housing Program Implementation Details 106
4.741 Purpose of Inclusionary Program 106
4.742 Requirements 106
4.743 Purpose of the In- lieu Fee 107
4.744 Use of In- Lieu Fees 110
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List of Tables
Table 1- 1.............................................................................................................................. 10
Housing Element Requirements and Reference Page
Table 2- 1.............................................................................................................................. 13
Population Growth
San Clemente and Orange County 1980- 2000
Table 2- 2.............................................................................................................................. 14
City of San Clemente
Housing Growth 1980- 2000
Table 2- 3.............................................................................................................................. 14
San Clemente Residential Land Use Inventory October, 2000
Table 2- 4.............................................................................................................................. 15
Status of Ranch Property Development October 2000
Table 2- 5.............................................................................................................................. 16
City of San Clemente & Sphere of Influence
Vacant Acreage and Projected Development January 1999- June 2005
Table 2- 6.............................................................................................................................. 17
Projected Development by Ranch Property 1999- 2005
Table 2- 7.............................................................................................................................. 19
Residential Land Use Summary
Talega – City and Sphere of Influence 1999- 2012
Table 2- 8.............................................................................................................................. 20
Talega City and Unincorporated County Sphere of Influence
Current and Projected Development
Table 2- 9.............................................................................................................................. 20
Talega Annexation Program 1999- 2004
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Table 2- 10............................................................................................................................ 22
Projected Development of Vacant Residential In- fill Lots 1999- 2005
Table 2- 11............................................................................................................................ 23
City of San Clemente
Population and Housing Growth January 2000- June 2005
Table 2- 12............................................................................................................................ 24
City of San Clemente
Regional Household Needs by Income Group 1998- 2005
Table 2- 13............................................................................................................................ 26
Transfer of RHNA Housing Units from County Unincorporated
Regional Household Needs by Income Group 1998- 2005
Table 2- 13 A........................................................................................................................ 27
Total RHNA Units and Projected Units to be Constructed
Talega Annexation and City Housing Units
Regional Household Needs by Income Group 1998- 2005
Table 2 - 14........................................................................................................................... 27
City of San Clemente
Quantified Objectives for Construction, Rehabilitation and Conservation 1998- 2005
Table 2- 15............................................................................................................................ 31
San Clemente
Population and Household Characteristics 1990 Census
Table 2- 16............................................................................................................................ 32
San Clemente Housing Costs * June 2000
Table 2- 17............................................................................................................................ 32
Housing Affordability for Very Low Income to Moderate Income Households
HUD Income Categories for Orange County 2000
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Table 2- 18............................................................................................................................ 34
Occupations of San Clemente Residents - 1990 Census
Table 2- 19............................................................................................................................ 34
Labor Market within San Clemente
State Employment Development Department - 1996
Table 2- 20............................................................................................................................ 41
San Clemente Special Needs Housing
1990 Census Data and 2000 Affordable Units
Table 2- 21............................................................................................................................ 45
General Plan Residential Density Ranges - 2000
Table 2- 22............................................................................................................................ 46
Residential Zoning Districts*
San Clemente Zoning Ordinance Section 17.32.030( 4)
Table 2- 23............................................................................................................................ 47
Non- Residential Zoning Districts with Residential Uses Conditionally Permitted*
San Clemente Zoning Ordinance Section 17.36.020( 8) and 17.40.030( 5)
Table 2- 24............................................................................................................................ 47
Parking Requirements for Three or More Units on a Single Lot
San Clemente Zoning Ordinance Section 17.64.050( B)( 7)
Table 2- 25............................................................................................................................ 48
San Clemente Overlay Districts
Table 2- 26............................................................................................................................ 51
Planning and Engineering Selected Permit Fees* - 2000
Table 2- 27............................................................................................................................ 60
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Basic Construction Valuation for Residential Properties
San Clemente Building Division - 2000
Table 2- 28............................................................................................................................ 63
Orange and LA County Mortgage Rates* - May 2000
Table 2- 29............................................................................................................................ 63
Money Rates* May 2000
Table 3- 1.............................................................................................................................. 74
Inclusionary Housing
Requirements and In- lieu Fees Collected - 1996- 2000
Table 3- 2.............................................................................................................................. 75
Evaluation of Regional Housing Needs Assessment - 1989- 2000
Table 3- 3.............................................................................................................................. 79
1989 Housing Element
Evaluation of Policies and Implementation Programs
Table 4- 1........................................................................................................................... 103
San Clemente Redevelopment Agency Housing Budget- 2000- 2005
Table 4- 2............................................................................................................................ 104
San Clemente Redevelopment Agency
Affordable Housing Program
Estimated Units Assisted with Housing Funds 1999- 2004
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EXECUTIVE SUMMARY
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CHAPTER 1
INTRODUCTION
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CHAPTER 2
NEEDS ASSESSMENT, OPPORTUNITIES AND
CONSTRAINTS
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CHAPTER 3
EVALUATION OF THE 1989 HOUSING ELEMENT
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CHAPTER 4
GOALS, POLICIES AND PROGRAMS
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Housing Element 2000
Housing Element Revision 2000- Executive Summary
1.0 Introduction
The Housing Element is a component of the General Plan which identifies the housing needs of all
economic segments of the community and recommends ways to meet these needs while balancing
community objectives and resources. State law requires that all cities adopt a Housing Element
and requires that the Element be revised as appropriate but not less than every five years, unless
extended by the State. Due to the State’s budget crisis in 1993- 94, the required update of the
Regional Housing Needs Assessment ( RHNA) and Housing Element was postponed from 1994 to
1996. In preparations for the June 30, 1996 Housing Element update the City of San Clemente
convened a Housing Element Advisory Committee which updated the goals and policies of the
1989 Housing Element. This update was not adopted by the City Council because the State
postponed the RHNA assessment and the due date of the Housing Element to June 30, 1998. The
Housing Element was postponed once more to enable the Southern California Association of
Governments ( SCAG) to begin the RHNA analysis in 1998. The completed RHNA analysis was
submitted by SCAG and approved by the State Housing and Community Development
Department ( HCD) on December 21, 1999. Under the new law enacted by AB1744, the housing
element revision completion date for jurisdictions located in the SCAG region is December 31,
2000.
The last Housing Element was adopted December 20, 1989 and amended on March 17, 1993 for
the Preservation of Assisted Housing. The revisions presented herein incorporate the most current
data and information that are readily available. The section on the evaluation of the 1989 Housing
Element includes the progress the City has made in the implementation of the housing goals,
policies and programs and the revisions to the Housing Element made in 1996.
2.0 Scope and Contents
The Housing Element consists of the executive summary, four chapters and supportive
appendices. The first chapter summarizes the Housing Element law, requirements and its
relationship to the General Plan. It also expla ins the public participation effort of the Housing
Element Advisory Committee appointed by the City Council. This effort, in addition to the
participation of the public and the development community at workshops and public hearings
produced the updated Housing Element.
The second chapter provides an analysis of the housing needs, opportunities and constraints to
housing development in San Clemente. The needs assessment quantifies the problems of housing,
especially the need for affordable housing. Requirements for Coastal Housing and redevelopment,
the vacant land inventory, the regional housing needs analysis, and an update of the preservation
of assisted housing units are also included in the second chapter.
The third chapter consists of the evaluation of the existing Housing Element, and the
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Housing Element 2000
progress and assessment of the City’s housing programs and related ordinances. The evaluation
assesses 23 policies and the programs developed to implement them since 1989.
The fourth chapter presents the City’s goals, policies and programs for housing. It also describes
the programs implemented by the Planning Division, and the revisions to the Inclusionary Housing
Program. The appendices includes additional statistical tables from the Census and other sources,
the original Amendment for the Preservation of Assisted Housing, 1989- 1999, and copies of
ordinances and housing laws.
3.0 City of San Clemente Housing Goals
Four new housing goals were included in the 1996 update and carried forward with the 2000
update:
1. To provide opportunities for a decent home in a healthy living environment for all
households in the City of San Clemente as stated in the National Housing Acts
and by the California State Legislature.
2. To ensure that residentia l land uses properly relate to other land uses to form a
functionally integrated and economically balanced community.
3. To ensure overall high degree of residential quality, maintenance, and
rehabilitation where needed, throughout the community.
4. To provide a supply of housing that offers a variety of housing opportunities,
including for- sale and rental units, to accommodate a diverse population and all
economic segments.
4.0 Summary of Needs Assessment
The following table provides a profile of housing, population and income characteristics of San
Clemente, in addition to the special needs population.
Summary of Needs Assessment
Total Population Jan. 2000 – 50,302 Projected Population June 2005 – 62,151
Total Housing Units Jan. 2000 – 20,872 Projected Housing Units June 2005 - 25,481
Total City Projected New Housing Units Jan. 2000- June 2005 - 4,609 ( includes County/ Talega
annexations.)
Total SCAG/ RHNA Construction Need Projection Jan.’ 98- June 2005 – 2,719 d. u.
Total RHNA Transfer of Housing Units from County Unincorporated Area to City - 1,864
Orange County Median Income 1990 - $ 45,922
Orange County Median Income 2000 - $ 69,600 ( HUD, 2000)
Special Needs Households 1990 Census
· Very Low Income 1990 - earning less than $ 20,000 - 2,640 households
Percent paying more than 30% of Income on rent - 84%
1990 Affordable Housing Cost for very low income households - $ 500/ month
· Very Low Income 2000 - $ 34,800 Affordable Housing Cost - $ 870/ month
· Disabled Persons with a mobility or self care limitation - 3,417 persons
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· Seniors over 65 years old - 5,336 or 13% of the population
Number of Seniors at or below poverty - 261 persons or 5% of senior population
Number of Senior Households - 3,482 or 21% of total households in City
Number Senior Households living alone - 1,353 or 39% of senior households
· Total Persons living in Poverty - 2,852 or 7% of the population
Poverty Households with Children
In Married Family - 37%
Female Householder, no spouse - 51%
Male Householder, no spouse - 12% Source: 1990 Census, State Dept. of
Finance, HUD, 2000
5.0 Regional Housing Needs Assessment ( RHNA)
The Southern California Association of Governments ( SCAG) in conjunction with Orange County
Council of Governments ( OCCOG) and the Center for Demographic Research at Cal State
Fullerton determined the city’s share of the regional housing needs by household income. The
following table presents the housing needs for the period of January 1998 - June 2005. This is
based on projected household growth, less vacancies, plus replacement need and construction
need over the six and a half year period. When Talega builders are ready to pull building permits
in the Talega unincorporated area, the County is able to transfer their regional housing needs quota
to the City of San Clemente. After building permits are applied for the land is annexed into the
City.
City/ SCAG RHNA* Talega Unincorp. Land RHNA
Household Income Level 1998- 2005 Transfer to City 1998- 2005
Very Low 545 477
Low 308 252
Moderate 550 573
High 1,317 562
Total Housing Units 2,719
1,864
6.0 Policy and Programs
The following table presents a updated summary of the 1989 Housing Element policies and
program action to be taken to implement the policies. Policies are broken into five different
categories: Construction, Rehabilitation, Conservation, Administration and Affordable Housing.
Section 4 provides the implementation plan for the policies and objectives.
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Housing Element 2000
POLICY CATEGORY PROGRAM
Construction and Rehabilitation Action
.
1. Building Code update Innovative construction techniques to
reduce housing costs
2. Community Standards Increase neighborhood quality through code
enforcement
3. Siting of Housing Encourage below market rate housing to be
accessible and sited throughout the city
4. Assisted Housing Apply for grants to increase supply of
affordable housing
5. Construction of Affordable Housing Encourage construction of affordable housing
through the provision of Loans and Grants to
Non- Profit Housing Agencies, Inclusionary
Program, Tax Credits, Density Bonus and other
incentives
6. Second Residential Units Allow for development of “ granny units”
7. Redevelopment Facilitate the acquisition, rehabilitation and
conversion of dilapidated multi- family units
to non- profit ownership
8. Rehabilitation Continue local Home Rehabilitation Program,
provide loans and grants
9. Modification of Units Provide loans and grants to make housing
more accessible to disabled persons
10. Monitor deterioration Continue Neighborhood Pride Program and
Code Enforcement to work with property
owners to prevent deterioration of housing
Stock
Conservation Action
11. Continued affordability Enforcement of Coastal Zone laws, ensure
in coastal zone replacement of affordable housing
12. Preserve residentially zoned Assist in affordability of mobilehome parks
mobilehome parks through loans and grants
13. Condominium Conversion Enforcement of conversion law when
vacancy rates are below 10%
Administration Action
14. Housing program Continue implementation of programs and
projects
15. Public Participation Update future Housing Element and CDBG
Program, , provide workshops and hold public
hearings as required by State/ Federal law
16. Fair Housing Promote fair housing practices
17. Relocation Assistance Compliance with relocation laws
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Housing Element 2000
18. Marketing of Programs Provide public information on housing programs
through provision of brochures, flyers, mail and
other public access media
19. Homeless Issues Assist with transition from homelessness to
permanent housing by working with Non-profit
agencies
20. Housing Support Services Provide grants to Non- profit Agencies to
develop and support housing programs serving
special needs population
21. Housing and Recreation Plan for adequate recreation and open space
within new housing developments
22. Alternate Housing Encourage provision of congregate housing
and assisted living facilities
23. Neighborhood Associations Provide information to residents on property
management, neighborhood associations
POLICY CATEGORY PROGRAM
Affordable Housing 1 Action
24. Innovative housing Work with private and non- profit developers
to identify financing sources and provide
below market rate housing
25. Expand housing stock Assist in construction, acquisition and
rehabilitation of properties, provide zoning
incentives, reduce parking requirements,
provide density bonuses for new units
26. Conversion Assist in financing conversion of high
vacancy motels and apartments to below
market rate housing
27. Finance Projects Provide grants and loans to Non- profit
housing corporations housing very- low
income households
28. At- risk Projects Review ability for city to financially support
projects at risk of losing their affordability
29. Non- profit ownership Support non- profit ownership of below
market rate housing
30. Length of affordability Require publicly funded housing to be for
longest feasible time
31. Program monitoring Ensure affordability requirements are met
through annual monitoring
32. Review fees Review fees to determine which can be
deferred, reduced or supplemented
1 Affordable Housing refers to government subsidized or assisted ( through incentives) below market rate
housing regulated for very- low income households earning 50% ( 60% tax credit limit) or less than median
income where housing costs are no greater than 30% of household income according to government
regulations.
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Housing Element 2000
7.0 Summary
The Housing Element identifies needs, establishes goals and policies, and recommends programs
to address those needs from 1998- 2005. Although statutory requirements shape the contents of
the element, the special setting and capabilities of the City of San Clemente form the basis for
all components of the Housing Element.
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Housing Element 2000 7
Introduction to the Housing Element
1.1 Purpose of the Housing Element
The purpose of the Housing Element is to identify the City’s housing needs and outline goals,
policies and programs to address them. The Housing Element is a five year plan, extending from
December 31, 2000 through June 30, 2005, barring any extensions from the State. The primary
issues addressed in the Housing Element include: 1) the provision of a decent home in a healthy
environment for all economic levels of society, 2) housing affordability for special needs
populations, 3) assisting in the development of affordable housing, 4) implementation of housing
programs, and 5) rehabilitation and preservation of existing affordable housing.
1.2 Overview
The Housing Element is a component of the General Plan. It is the primary planning guide for
local jurisdictions to identify the housing needs of the city and recommend ways to meet these
needs while balancing community objectives and resources. The 2000 Housing Element consists
of the Executive Summary, and four chapters, including: 1) Introduction, 2) Needs Assessment,
Opportunities and Constraints, 3) Evaluation of the Housing Element, and 4) Goals, Policies and
Programs, and the Appendices.
1.3 Citizen Participation
The importance of the Housing Element provides an opportunity for participation of citizens from
all economic segments of the community. Section 65583( c)( 5) of the Government Code states
that, “ The local government shall make diligent effort to achieve public participation of all the
economic segments of the community in the development of the housing element ...” . In 1996 the
City Council appointed six members of the community, one City Council member, one Planning
Commission member, one Human Affairs Committee member and alternates to the Housing
Element Advisory Committee ( HEAC). The members of the committee consisted of a diverse
age, nationality, income and housing background. Nine public HEAC meetings were held, in
addition to a study session, and two public hearings. The HEAC meetings provided a two way
dialogue between City staff and participants. The meetings provided an avenue for the staff to
provide information concerning pertinent laws, needs data, goals, and programs, to enable the
Committee to update and develop new policies and programs to recommend to the City Council.
The group was invited to a study session in the fall of 2000 to review the updated 2000 Housing
Element. The Planning Commission is also scheduled to hold a public hearing on December 5th
and make a recommendation to the City Council for approval on December 20, 2000.
The Housing Coordinator also coordinates the Human Affairs Forums that are held five times a
year. The forums are sponsored by the City’s Human Affairs Committee ( HAC) and are
advertised in the local paper, Sun Post News, the LA Times and the Register. In addition, over
200 persons and organizations are mailed notices of the forums. The purpose of the forums is to
discuss local social issues and needs and to identify resources available to residents and non- profit
organizations providing services in San Clemente. Attendance at the forums includes members of
the public, government officials, local representatives of housing, emergency services, disabled
services, youth, family and senior organizations, to name a few. A list of the organizations
participating at the Human Affairs Forums is included in the Appendix. Some of the forum topics
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Housing Element 2000 8
in the last several years has included affordable housing – including permanent, transitional and
emergency shelter resources, homeless needs, emergency services, domestic and family violence,
mental health, youth and senior needs. A needs assessment survey was taken at a forum in 1999
which identified affordable housing as the issue with the greatest needs in San Clemente. Optional
surveys are provided at every forum and filled out by interested participants to elicit feedback on
the forum and to request additional information or make recommendations for future forums. In
September 2000, a forum on emergency services and housing was held and input from local
agencies and the public was gathered for the preparation of the Housing Element. Copies of the
draft Housing Element were made available to a wide variety of non- profit organizations for their
input and comment. At least once a year a forum on housing issues is provided to receive input
from the public and provide information to interested participants. In January 2001, the County’s
Homeless Coordinator, the Executive Directors from the Shelter and Hunger Partnership and
Saddleback Outreach, and the City’s Housing Coordinator discussed the Orange County homeless
needs assessment, new programs and projects available to the public, as well as funding sources
available for non- profit housing organizations to build new affordable housing.
In the spring of each year, the City’s Social Service Budget Committee reviews grants submitted
to the City for funding from the Social Service Budget within the General Fund. The City funds
approximately 15 different non- profit organizations programs based on their ability to meet the
community’s needs and provide services identified at the Human Affairs Forums. In addition to
the Human Affairs Committee, the Housing Coordinator participated on an Ad- Hoc San Clemente
Homeless Task Force during 1999 and 2000 to understand the local homeless needs and develop a
cold weather shelter. Participants from various churches and non- profit agencies representing the
homeless met on a monthly basis. A cold weather shelter was operational for 2 years until the
Church leadership changed and shelter needs changed from single individuals to families. Families
are now provided emergency shelter at local hotels through payments made by the Salvation
Army, Family Assistance Ministries, and local churches. Through the Human Affairs Forums,
Social Service Budget Committee interviews with the non- profit agencies, and follow- up
monitoring of grants, there is a substantial amount of communication between the City and the
community regarding housing and other social needs. The Housing Coordinator also participates
on various Countywide committees and consortiums on affordable housing and homeless needs.
This information is shared with the participants at the Human Affairs Forums.
1.4 State Housing Element Requirements
The preparation of the Housing Element is guided by California State Law, Chapter 10.6 and 10.7
for coastal communities of the Government Code. The law governing the contents of Housing
Elements is among the most detailed of all elements of the General Plan. According to Section
65583 of the Government Code, “ The Housing Element shall consist of an identification and
analysis of existing and projected housing needs and a statement of goals, policies, quantified
objectives, and scheduled programs for the preservation, improvement, and development of
housing and shall make adequate provision for the existing and projected needs of all economic
segments of the community”.
The State Department of Housing and Community Development sets forth specific requirements
regarding the scope and content of Housing Elements prepared by cities and counties. Table 1- 1
summarizes these State Housing Element requirements and identifies the applicable chapters of
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Housing Element 2000 9
the San Clemente Housing Element where these requirements are addressed. Three main areas
of study are required in the Element: 1) Housing Needs Assessment, 2) Goals and Policies, and 3)
Housing Programs and schedule for implementation.
1.5 Consistency of General Plan and other Housing Plans
The Housing Element must be consistent with the rest of the General Plan. The General Plan was
updated in 1992. Housing must be viewed in a context that includes more than the availability of
adequate shelter. External factors affect the adequacy of housing, including the quality of public
services, aesthetics and visual characteristics, and proximity to related land uses. For example,
the location of housing determines the extent of school, park, library, police, fire and other services
associated with housing. The Housing Element builds upon the other General Plan Elements and
is consistent with the policies and proposals set forth by the Plan.
In addition, the Housing Element was evaluated for consistency with the Orange County
Consolidated Plan, the City’s Five Year Redevelopment Plan and Housing Strategy. Because the
required contents of the Consolidated Plan and portions of the RDA Housing Strategy are very
similar to the Housing Element, the City’s Housing Element is consistent with these plans.
1.6 Sources of Information
The 2000 Housing Element is based upon the most current information that was available at the
time of preparation. The most detailed and accurate data base is the 1990 Census for population
and income profiles. In addition, the primary sources of information included the following: the
Regional Housing Needs Assessment came from the Southern California Association of
Governments which determined the projections for regional housing needs by income group; the
1980 - 2000 housing, population and vacancy estimates from the California Department of
Finance; the 1990 - 2000 HUD median income figures; the 2000 Vacant Land Inventory, City of
San Clemente, UC Irvine Intern Survey; the 2000 Projected Development of Ranch and Infill
properties, Planning Division; the 1992 and 2000 Survey of Residential Rehabilitation Needs,
Planning Division; and the Construction Values from the Building Standards Association.
The following table outlines the requirements of the Housing Element and the reference page cites
where the information is located.
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Table 1- 1
Housing Element Requirements and Reference Page
Required Housing Element Component
Reference
A. Housing Needs Assessment
1. Analysis of population trends in San Clemente in
relation to regional trends.
2. An inventory of land suitable for residential
development and an analysis of the relationship of
zoning, public facilities and services to these sites.
3. Projection and quantification of San Clemente’s existing
and projected housing needs for all income groups.
( RHNA analysis)
4. Quantified Objective for Construction, Rehabilitation,
and Conservation
5. Analysis and documentation of San Clemente’s
housing characteristics including the following:
a. housing stock condition
b. level of housing cost compared to ability to pay
c. overcrowding
6. Analysis of special housing need: disabled, elderly,
large families, female- headed households, low income,
persons in need of emergency shelter.
6. Analysis of employment trends in relation to housing
needs in San Clemente.
7. Coastal Housing and Redevelopment Requirements
8. Analysis of opportunities for energy conservation with
respect to residential development.
9. 9. Analysis of existing and potential governmental
constraints upon the maintenance, improvement, or
development of housing for all income levels.
9. Analysis of existing and potential non- governmental
and market constraints upon maintenance,
improvement, or development of housing for all income
levels.
10. Analysis of assisted housing developments eligible to
Appendix for Census Tables
Chapter 2, page 2- 2
Chapter 2, page 2- 3 - 2- 5
Chapter 2, page 2- 11- 2- 13
Chapter 2, page 2- 15
Chapter 2, page 2- 16
Page 2- 16
Page 2- 19
Page 2- 26
Chapter 2, page 2- 22 - 27
Chapter 2, page 2- 20
Chapter 2, page 2- 27
Chapter 2, page 2- 29
Chapter 2, page 2- 30
Chapter 2, page 2- 43
Chapter 2, page 2- 55
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San Clemente
Housing Element 2000 11
Required Housing Element Component
Reference
change from non- low income housing use.
B. Evaluation of 1989 Housing Element
C. Goals and Policies
1. Identification of San Clemente’s goals, quantified
objectives, policies, and financial resources relative to
maintenance, preservation, improvement, and
development of housing.
D. Implementation Program
State guidelines provide for an implementation program
to do the following:
1. Identify adequate sites with required public services
and facilities for a variety of housing types for all
income levels.
2. . Conserve and improve the condition of the existing and
affordable housing stock in San Clemente.
( Neighborhood Pride Program. Home. Rehab. Program)
3. Program to assist in the development of adequate
housing to meet the needs of low- and moderate- income
households. ( Inclusionary Housing Program)
4. Equal Opportunity Housing : Promote housing
opportunities for all persons.
Chapter 3
Chapter 4
Chapter 4
Appendix, Maps
Chapter 4, page 4- 17
Chapter 4, pages 4- 22
Chapter 2, page 2- 27
Policy 16, page 4- 10
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San Clemente
Housing Element 2000 12
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San Clemente
Housing Element 2000 13
Needs Assessment, Opportunities and Constraints
This chapter provides an analysis of the housing needs, opportunities and constraints to developing
housing in San Clemente. State Law requires the Housing Element to address the following
categories as they relate to the provision of housing for all economic levels of residents in the City:
· Housing Needs
· Housing Trends and Opportunities
· Land Inventory and Site Availability
· Population and Household Characteristics
· Employment of Population
· Special Needs Housing
· Regional Housing Needs
· Coastal Housing Development
· Housing Characteristics, Cost, and Affordability
· Conservation/ Preservation of Affordable Housing
· Energy Conservation
· Equal Opportunity Housing
· Constraints on Housing Development
· Preservation of Assisted Housing
Appendix A is the Technical Appendix for the needs assessment with additional analysis and
tables from the 1990 Census data and local real estate information.
2.1 City Profile
San Clemente is the southern most city in Orange County. Its coastal setting, Mediterranean
climate, and rolling hills provide a unique and attractive living environment. This resort setting has
a substantial impact on the employment characteristics as well as the city’s economic base.
These conditions attract growth which create a highly competitive residential atmosphere.
The City has three general sub- markets of development: the historic town center- coastal area, the
residentially developed hillside areas, and the continuing development of the Ranch Properties east
of Interstate 5.
The City’s development pattern is shaped by its geographic setting and boundaries; to the west -
coastal development from Interstate- 5 to the Pacific Ocean, east of Interstate 5 - large ranch
properties ( except for Marblehead Coastal), to the south - San Diego County/ Camp Pendleton,
and to the north, the cities of Dana Point and San Juan Capistrano.
Prior to 1990, housing of Marines from Camp Pendleton impacted the rental market. Due to the
lower cost of housing in Oceanside, the development of 1,997 new housing units on Camp
Pendleton since 1990, and the reduced number of military personnel in Orange County, this
population segment no longer impacts the City requiring additional analysis.
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San Clemente
Housing Element 2000 14
San Clemente was developed in the 1920’ s and has a wealth of historical housing and public
facilities. New development should be compatible with this resource to preserve the City’s image
as a “ Spanish Village by the Sea”.
Since the last Housing Element Update in 1989, new development slowed significantly between
1990 and 1995. Whereas, between 1985 and 1989 the average annual development of housing
was 859 dwelling units a year, between 1990- 2000 the average annual development of housing
declined to 214 dwelling units a year. With the economic recovery in the late 1990’ s, and a
significant amount of vacant land to develop in planned Ranch properties, in addition to a backlog
of approved development permits, San Clemente is projected to generate approximately 800
new units a year between 2000 and 2005. This includes proposed annexed land from the Talega
development that is presently located in County unincorporated territory.
2.2 Housing Needs
The City’s housing needs reflect the special characteristics of the population, employment and
existing housing which affect the demand for housing in the future. Three major needs categories
result from :
1. Housing needs generated by increased population growth in the city and region
2. Housing needs generated from deterioration of existing units
3. Housing needs generated from the presence of “ special needs” populations, including
households paying more than they can afford for housing
2.21 Housing Needs from Population Growth
San Clemente has been one of the fastest growing cities in Orange County since 1980. Whereas,
Orange County’s average annual population growth rate was 2% a year between 1980 and 1985,
San Clemente’s was 2.5%. San Clemente experienced the fastest growth rate between 1985 and
1990, with 6.7% annual population growth compared to the County’s 1.7% growth rate. Although
growth slowed between 1990 and 1995, San Clemente’s average annual growth rate has been
2.8%, which is comparable to Orange County’s at 2.7% a year. San Clemente’s growth rate was
slightly higher than the County’s between 1995 and 2000 at 1.5% a year. Since 1980, the City’s
population has nearly doubled, from 27,322 to 50,302 in 2000, for an annual average increase of
1,149 persons per year.
Table 2- 1
Population Growth
San Clemente and Orange County
1980- 2000
Year San Clemente Annual
Growth Rate
Orange
County
Annual
Growth Rate
1980 27,322 1,932,708
1985 30,783 2.5% 2,127,900 2.0%
1990 41,100 6.7% 2,326,500 1.7%
1995 46,764 2.8% 2,641,400 2.7%
2000 50,302 1.5% 2,828,351 1.4%
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San Clemente
Housing Element 2000 15
In concert with this fast pace of growth, housing development also grew proportionately. In 1980
there were 13,233 dwelling units in the City. Between 1980 and 1990 a total of 5,493 new housing
units were added, increasing the number of dwellings by 42%, for a total of 18,726 dwelling units
in 1990. The largest increase in housing growth occurred between 1985 and 1990. The total
increase was 4,295 dwellings, which increased the housing stock by 859 units a year ( 6% a year).
As the recession of the 1990’ s lingered, housing development decreased. The average annual
growth in housing units amounted to 223 units between 1990 and 1995 and 205 units a year
between 1995 and 2000. As discussed, a backlog of approved development permits will increase
housing development substantially over the next five years. During 2000, 600 certificates of
occupancy for new housing was issued. An average of 800 housing units a year is estimated to
be added to the housing stock by mid 2005.
Table 2- 2
City of San Clemente
Housing Growth
1980- 2000
Year
Total
Housing
Units
Year
Housing
Unit
Growth
Annual
Growth
Rate
1980
13,233
1985 14,431 1980- 1985 1,198 1.8%
1990 18,726 1985- 1990 4,295 6.0%
1995 19,843 1990- 1995 1,117 1.2%
2000 20,872 1995- 2000 1,029 1.0%
2.211 Residential Land Use Inventory
The following table presents the total residential acreage and vacant land inventory in San
Clemente. Approximately 72 % of residential land is developed in the City. A total of 1113.3
vacant residential acres remain Forster Ranch, Marblehead Coastal, and Talega. A total of 326.7
acres of vacant land within Talega is situated in the City’s sphere of influence in the County. A
total of 56.3 acres remain on vacant in- fill parcels.
Table 2- 3
San Clemente Residential Land Use Inventory
October, 2000
Residential Land Use Total
Acres
% of
Total
Vacant
Acres
% of Total
Vacant Ac.
Very Low ( 1 d. u./ 20 gross ac.) 25.0 .8 25.0 3.0
Low ( 4.5- 7 d. u./ ac.) 2,380.2 80.5 522.2 62.8
Med Low ( 7.1 - 10 d. u./ ac) 251.4 8.5 101.9 12.3
Medium ( 10.1 - 24 d. u./ ac) 235.7 8.0 158.9 19.1
Med. High & High ( Talega, Infill)
( 24.1- 36 d. u./ ac)
67.0 2.2 23.0 2.8
Total 2,959.3 100.0 831.0 100.0
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San Clemente
Housing Element 2000 16
2.212 Housing Growth Trends and Opportunities/ Annexation Program
Between 1980 and 2000 approximately 5,706 dwelling units were built in Forster Ranch,
Marblehead Inland, Rancho San Clemente, and Talega. The following table summarizes the status
of housing development on the Ranches as of October 2000.
Table 2- 4
Status of Ranch Property Development
October 2000
Ranch Properties
Constructed
S. F. Detach. Units
Constructed
M. F./ Attach. Units
Density
D. U./ Acre
Vacant
Acres
Forster Ranch 2,009 74 Low ( 4.5- 7)
Med- low ( 7- 10)
333.9
Marblehead Inland 748 334 Low( 4.5- 7)
Med. ( 10- 15)
0
0
Marblehead Coastal 0 0 Low( 4.5- 7) 116.7
Rancho San Clemente 1,497 882
Low( 4.5- 7)
Medium ( 10- 15)
Med. High ( 15- 14)
0
0
0
Talega
City
0 0 Low ( 4- 7)
Medium low ( 7- 10)
Medium ( 10- 15)
Med. High ( 15- 24)
227.0
382.8
28.2
29.4
Talega
Sphere of Influence
County ( to be annexed)
162 0 Low ( 0- 4.5)
Medium low( 4.5- 7)
Med. ( 7- 15)
Med. High( 15- 24)
High ( 24- 36_
11.4
138.3
119.5
57.5
4
Total 4,416 1,290 1448.7
In order to project future development and identify opportunities for residential development, the
following table was developed. The Planning Division has calculated total vacant residential acres
in the City. As of January, 2001, an estimated 5,502 dwelling units remain to be built on the
existing ranches, of which 4,129 are the projected number of dwellings to be built in Talega ( City
and Sphere of Influence/ County unincorporated land), and 745 +/- dwelling units on in- fill lots, for
an estimated total of 6,510 new dwelling units ( see Buildout Projections in the Appendices).
Based on plans submitted to the City, the following Table 2- 5 estimates a minimum of 6,510
dwelling units and a maximum of 6,629 dwelling units which could be built in the City ( including
annexations) according to the existing General Plan and Zoning Ordinance. Maximum densities
are rarely achieved on the Ranch properties because of the hilly terrain of the sites and the hillside
development ordinance. However, small in- fill projects tend to build out close to their maximum
densities. The historical average development of in- fill sites is 30- 40 units a year. The actual
number of units built depends on the size of the lot and project design. The City calculates the
allowable number of units in whole numbers. Therefore, if a multi- family lot of 6,000 square feet
with a minimum lot size of 1,800 square feet per unit, the calculation for the number of units would
be 3.3 units. The allowable number of units is reduced to 3, unless the development was an
affordable housing project, in which case the project could get a density bonus of 25% and the
allowable number of units would be 4.
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San Clemente
Housing Element 2000 17
Table 2- 5
City of San Clemente & Sphere of Influence
Vacant Acreage and Projected Development
January 1999- June 2005
Residential
Density Per Acre
( Dwellings/ Acre)
Location*
Citywide
Vacant Acres
2000
Projected
Add’l D. U.
With Density
Bonus
At Build Out
Projected
Dwelling Units
To Be Built
1999- 2005
West of I- 5 Coastal Zone
Low ( 4.5- 7.0)
Marblehead Coastal&
In- fill
1120ac
7 ac.
380
50
270
40
Med.( 15- 24)
High( 24- 36)
NC- 2, NC- 3 ( Seniors)
( not to exceed 45/ ac)
CC- 2 ( Seniors 45/ ac)
MU3 Mixed Use
( 36/ ac)
In- fill Multi- fam.
In- fill Multi- fm.
In- fill Multi- fam
In- fill Multi- fam
In- fill Multi- fam.
6.9ac/ 53 lots
2.65ac/ 17 lots
3.5ac/ 20 lots
4.2ac.
1.9ac/ 12 lots
147/ 184
106/ 132
135/ 169
122
92/ 115
150
77
0
122
30
East of I - 5
VeryLow ( 1du/ 20ac)
Low ( 4.5- 7)
Low ( 4.5- 7)
Low ( 0- 4.5)
In- fill Single fam.
In- fill Single fam.
Ranches – Single fam.
Talega – Single fam.
25.0
10.0
348.9
238.4
3
70
1,256
579
0
60
1,071
204
Med. Low ( 7- 10)
Low- Med
In- fill – Single fam.
Talega – Single fam.
2.2
382.8
20
1,656
0
1,026
Medium ( 0- 15) Talega ( att./ det.) 147.7 812 812
Medium High ( 0- 24)
High ( 0- 36)
Talega Multi- fam.
Talega – Multi- family
982
100
962
100
Total 1,127.9 6,510/ 6,629 4,924
* Ranches include existing built ranches: Marblehead, Forster and Rancho San Clemente, Talega includes
both City and Sphere of Influence/ County unincorporated land.
Table 2- 5 presents a total of 3,483 single family units and 1,441 multi- family units, for a total of
4,924 dwelling units to be built between 1999 and 2005 in San Clemente. The 4,924 units includes
the annexation of 1,864 dwelling units from the Talega development in the City’s Sphere of
Influence. This amounts to an average of 820 dwelling units a year, producing an average growth
rate of 4% a year. The number of units to be built is based on projections within approved
Specific Plans, infill projects that have received their entitlements and historical development
patterns for in- fill development. As mentioned, Ranch properties may have an unrealistic density
maximum because of the topography and environmental conditions of the land. The 250.6 acre
Marblehead Coastal property received approval of its Specific Plan in 1998. The residential
portion of the project is 116.7 acres with a density of 4.5 to 7.0 units per gross acre generating a
minimum of 504 dwelling units to a maximum of 784 units. Because of the sensitive topography of
the site, including coastal cliffs and canyons, and plants on the endangered list, the property was
approved for 432 units. Recent Coastal Commission recommendations has caused a downsizing of
the property to an estimated 380 units. This was due to additional open space recommendations
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San Clemente
Housing Element 2000 18
and canyon preservation. The City projects the first 90 units coming on line beginning in the 2002-
03 fiscal year.
Properties east of Interstate 5 include primarily planned communities as described in the next
section. Forster Ranch, Marblehead, Talega, and Rancho San Clemente have approved Specific
Plans and projections for development amount to approximately 740 dwelling units a year over the
6 year period.
Ranch Development Opportunities 1999- 2005
Out of the total 2,383 single family and 1,062 multi- family dwelling units projected to be built
between 1999 and 2005, the following numbers are projected per ranch:
Table 2- 6
Projected Development by Ranch Property
1999- 2005
Ranch Single Family Units Multi- family Units
Forster Ranch 909 0
Marblehead Coastal 270 0
Rancho San Clemente 162 0
Talega ( City & Sphere) 2,042 1,062
TOTAL 3,383 1,062
The City has two instruments that guarantee that infrastructure will be on time and in place to
accommodate development in any possible phasing scenario. The first document was adopted
in 1989 and is called the Regional Circulation Financing and Phasing Program ( RCFPP). This
Ordinance adopted document guarantees that fees will be collected from development in order
to pay for necessary traffic circulation infrastructure and that the infrastructure will be in place in
time to accommodate traffic generation from new development. Traffic is forecasted using a
traffic model, so that construction plans are developed and built prior to new development
impacting traffic levels of service beyond standards that are established in the General Plan. The
second set of documents are development agreements that are applied to the four major ranch
areas which comprise the bulk of new development projected for the City. The development
agreements guarantee, beyond the fee structure established in the RCFPP, large lump sum
payments of monies for all infrastructure improvements and are timed so that those
improvements can be constructed prior to the necessary capacity needs of new development.
In the early 1980’ s, separate agreements were negotiated with the developers which resulted in
the construction of a $ 35 million sewer plant that was completed in 1988. Sufficient sewer
capacity exists for all projected new development. In the early 1990’ s, a major new water main
line was brought into the City through the Talega development which linked up with the primary
main line to the City, thus providing a second source of water and fulfilling all projected future
water needs for the City. Likewise, fire station construction is guaranteed by various
development agreements, as is park construction and payment of park’s fee, as well as other
miscellaneous infrastructure needs. In sum, all facility needs of the City have been thoroughly
considered and are guaranteed by development agreements that have been adopted and are in
place.
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San Clemente
Housing Element 2000 19
Talega Annexation Program
A collaborative planning process between the City of San Clemente and the County of Orange
was utilized to form the Talega Joint Powers Authority ( JPA). The JPA gives the County and City
the power to regulate land use and development within their respective jurisdictions of the property
owned by Talega Associates, LLC. The JPA agreement enables the City to maintain continuity
of the Talega development by applying City standards and regulations to the County portion of the
development prior to annexation.
There are 792 acres of undeveloped land in the County portion adjacent to and within the sphere
of influence of the City. This is known as the “ Rolling Hills Planned Community”. The
agreement will terminate when all 792 acres are annexed to the City. When the entire
development ( including the annexed territory) is completed, up to 4,965 homes was originally
projected to occupy the 3,500- acre master planned community, located on Avenida Pico in eastern
San Clemente. However, an Area Plan is being prepared for adoption in June, 2001 which will
reduce the number of units in the unincorporated area to 1,864, reducing the total number of
housing units in Talega to 4,129.
Upon receiving discretionary approvals by the JPA, and prior to receiving building permits,
approved projects must meet the following two conditions to be annexed into the City:
1. A petition for annexation into the City of the project has been certified as sufficient by the
Orange County Local Agency Formation Commission pursuant to Government Code Section
56706.; and
2. The City Manager of San Clemente or his or her designee shall have approved the phasing
plan to be submitted by the master developer of the Talega Property.
The Orange County Local Agency Formation Commission ( LAFCO) has developed procedural
guidelines for RHNA redistribution upon annexation and incorporation of new projects from
unincorporated County territory into the incorporating jurisdictions. With each incorporation or
annexation, the County loses land use control over territory originally considered in the
development of their RHNA target numbers. Similarly, territory gained by cities through
annexation or incorporation was not included in the development of their RHNA allocations. To
allow for an adjustment of RHNA target numbers when annexation occurs the RHNA distribution
policy provides for a transfer of RHNA allocations as part of the LAFCO process. The proposed
reallocation will be consistent with the methodologies, factors and assumptions used by the Center
for Demographic Research in calculating the countywide RHNA allocations. Land annexed from
the County will use the RHNA allocations given to unincorporated areas.
The goal of the residential development is to provide housing opportunities for a variety of family
types and individuals of varying economic means. The residential component of the plan accounts
for approximately 994.1 acres, ( approximately 667.4 acres are located in the City and
approximately 326.7 acres are located in the City’s sphere of influence, in the unincorporated area
of the County of Orange). Residential use will be accommodated in five densities: low density,
low medium density, medium density, medium high density and high density. A maximum of 2,265
units are designated for development within the City of San Clemente, and the proposed Area
Plan for the sphere of influence as discussed above is 1,864 residential units. Table 2- 7 provides a
summary of the residential density categories and their associated acreage’s and unit allocation by
City and the Sphere of Influence.
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San Clemente
Housing Element 2000 20
Table 2- 7
Residential Land Use Summary
Talega – City and Sphere of Influence
Projected Development to Build Out
1999- 2012
Residential
Density
Designation
Maximum
Density
( du/ gross acre)
Acres
City Sphere
Dwelling Units
City Sphere
L – Low 0- 4.5 du/ ac 227.0 11.4 511 68
LM - Low Medium 0- 7 du/ ac 382.8 138.3 1,162 494
M – Medium 0- 15 du/ ac 28.2 119.5 239 573
MH – Medium
High
0- 24 du/ ac 29.4 57.5 353 629
H – High 0 4 0 100
Subtotals 667.4 326.7 2,265 1,864
TOTALS 994.1 4,129
The following table projects the development of Talega within the City and the annexation of
the unincorporated County dwelling units at the commencement of construction in 1999 through
2005. Annexation is projected to be completed in 2003. As indicated by Table 2- 8, the City
projects the Talega development to build a total of 3,104 dwelling units by 2005. Between
1999 and 2005, a total of 2,042 single family homes are expected to be built and 1,062 multi-family
or attached dwelling units are projected. Out of the 3,104 dwelling units, 1,240 will be
built in the City and 1,864 will be built in the Sphere of Influence and annexed into the City.
The Talega units projected to be built in the City by 2005 include 907 single family properties
on the low to medium land use areas, and 333 dwelling units in the medium high density area
within the Village 3 town- center area. This site could be developed as an affordable multi-family
housing site, if the necessary governmental subsidies are available and a non- profit
developer is able to put together a financing package to purchase the land and built the project.
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San Clemente
Housing Element 2000 21
Table 2- 8
Talega City and Unincorporated County Sphere of Influence
Current and Projected Development
1999- 2005
Residential
Density
Designation
To date
1999- 01
City/ Co
2001- 02
City/ Co.
2002- 03
City/ Co.
2003- 04
City/ Co.
2004- 05
City/ Co
Total
City &
Sphere
Low 0 0 0 30 0 38 68 0 68 0 204
Low- Med. 6 394 0 100 50 0 200 0 276 0 1,026
Med. 0 132 114 163 50 278 75 0 0 0 812
Med. High 0 0 0 372 0 257 167 0 166 0 962
High 0 0 0 0 0 100 0 0 0 0 100
TOTALS 6 526 114 665 100 673 510 0 510 0 3,104
The following table presents the annexation program by residential density and number of units.
Table 2- 9
Talega Annexation Program
Total Dwelling Units- Sphere of Influence
1999- 2003
Residential
Density
Total to be
Annexed
Annexed to date
1999- 00 2000- 01
Projected Annexation
2001- 02 2002- 03
Low 68 0 0 30 38
Low- Med. 494 92 302 100 0
Med. 573 70 62 163 278
Med. High 629 0 0 372 257
High 100 0 0 0 100
TOTALS 1,864 du 162 du 364 du 665 du 673 du
Within the annexed land, two medium high density developments have already received their
entitlements, including the 186 unit Jamboree/ Talega affordable very- low income family
apartments ($ 20,000 - $ 46,000 OC annual income), and 252 apartments by BRE Development
categorized as low- income ( averaging $ 60,000/ year in OC annual income) for a total of 438 units.
Another 191 units of medium high density units are projected to be developed on approximately 10
acres of land to be annexed by 2003. A 4 acre site next to BRE, currently zoned as commercial,
is being proposed as a high density apartment site and is projected to build 100 dwelling units.
In- fill Development Opportunities 1999- 2005
The City revised the General Plan in 1992 to include a new zone for mixed- use of commercial
retail, office, and residential land use. As indicated in Table 2- 23 on page 44, MU3 allows for 2 or
more units and senior housing built in conjunction with commercial development. MU5.1 allows
for 2 to 4 units, mobile homes, and senior housing allowed in conjunction with commercial on the
bottom floor. There are two mixed- use zones: 1) MU3 is in the Downtown Business District,
which encompasses the 100 and 200 blocks of Avenida Del Mar, the 100 blocks of Ave. Serra,
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San Clemente
Housing Element 2000 22
Ave Cabrillo, Ave. Granada and Ave. Victoria, and the 100- 300 blocks of South El Camino Real
and 100– 400 block of North El Camino Real between Avenida Presidio to Avenida Palizada, and
2) MU5.1 in the 2600 - 3800 blocks of South El Camino Real from E. Avenida Magdalena to
Avenida Santa Margarita. Although the majority of the lots along South El Camino Real are
developed, there are a number of underused lots where the buildings could be demolished and/ or
rehabilitated, and new construction could occur. There are also 12 lots that are vacant. A
number of the buildings in the mixed- use zones already have a combination of commercial and
residential uses. The allowed density is based on 1 dwelling unit per 1,200 square feet of lot area.
The dwelling unit size is a minimum of 600 square feet for new structures. Residential units are
allowed above the first story/ ground level to enhance pedestrian activity within the zone and
provide housing opportunities for employees and owners of commercial establishments.
Affordable housing for the special needs and very low income populations would also be
appropriate in the reuse of many of the vacant in- fill sites due to the proximity of transportation
routes and tourist/ service related employment opportunities. Although the placement of shelters is
not specifically spelled out in the Zoning Ordinance, shelters and transitional housing for
individuals and families in San Clemente have been treated as residential uses and are allowed by
right in the single family zone ( RL) when there are 6 or fewer persons per dwelling. New
development of shelters and transitional housing is allowed by right in multi- family zones ( RML,
RM and RH) when there are 4 units or fewer. Group homes for the mentally ill, drug or alcohol
dependent that receive State licensing are not required to have a conditional use permit, but are
allowed by right in the single family and multi- family as long as there are 6 or fewer beds per
dwelling unit.
Table 2- 22 and Table 2- 23 on page 44 describes the permitted uses by zone and those
developments requiring a Conditional Use Permit. New development of shelters, group homes, and
transitional housing projects are treated as any new residential project with 5 or more dwelling
units and are required to receive a conditional use permit. It is projected that a maximum of 92
market rate units or 115 affordable multi- family units, shelters or group homes ( including density
bonus) could be built on 12 mixed use in- fill lots, with a projection of approximately 30 units built
over the next five years. In 2000, Laura’s House Transitional Living Center received approval to
build a mixed use facility and is projected to build 6 two and three bedroom units over 3,500 square
feet of administrative/ counseling offices and a day care center for the participants of the domestic
violence program. Table 2- 5 on page 16 indicates the vacant acreage and projected number of
dwelling units to be built per zone. Historically, group homes have rented or purchased existing
single family or multi- family properties in San Clemente rather than build new.
The City encourages the development of senior housing projects by allowing them to be located in
residential, commercial and mixed- use zones. The project must conform to the development
standards required by the zone. However, density is flexible depending on whether there are units
provided for very low and low income households. The appropriate density shall be decided
through the conditional use permit process, however, density shall not exceed 45 dwelling units
per acre. A total of 135 multi- family market rate senior units could be built or 169 affordable
senior housing units could be built with a density bonus on the 19 in- fill neighborhood commercial
lots. There is also one 4.2 acre commercial site on Camino de Estrella in the north- west portion
of the City, where a senior housing project has received approval from the Planning Commission
for 122 affordable dwelling units for seniors.
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San Clemente
Housing Element 2000 23
A vacant lot survey completed in June, 2000 revealed a total of 50 vacant single family lots west
of Interstate 5 in the residential low density zone and 70 vacant multi- family lots. A total of 25
homes are projected to be built on the single family lots over the next five years. A total of 253
multi- family market rate dwelling units could be built on the 70 multi- family lots or if the units
qualified for a density bonus of 25%, a total of 316 units of affordable housing could be built.
In addition to the vacant lots, a total of 70 underutilized multi- family lots west of Interstate 5 were
counted with either single family blighted homes or blighted, non- conforming multi- family
properties. The average property was built in the 1950’ s. The typical 4,000 square foot medium
density lot with a single family home, could be torn down and 2 units could be built producing
roughly an additional 140 very low and low income apartment units.
East of Interstate 5, there is one very low density, 25 acre lot for sale which is owned by the
Water District. Although the land encompasses a canyon, 3 homes could be built on the land.
Approximately 12.2 acres of low and medium low density vacant land remains outside of the
Ranches for development of low density residential. Most of the lots are expensive view lots
within Sea Ridge and Sea Point estate developments. It has been calculated that 70 new homes
could be built on these lots, with an estimate of 60 homes built between 1999 and 2005.
Out of approximately 600 multi- family units and 143 single family homes which could be built on
vacant lots, a total of 379 multi- family units and 100 single family homes are projected to be built
over the next five years. The following table highlights the development totals.
Table 2- 10
Projected Development of Vacant Residential In- fill Lots
1999- 2005
Location Single Family Units Multi- family Units
West of I- 5 40 379
East of I- 5 60 0
2.213 Population and Housing Projections
Population is also projected to increase at a faster rate than the previous 10 years. Between 1990
and 2000, population grew at a rate of 2.2% a year. Population projections were based on the
State Department of Finance figure of 2.6 person per dwelling unit multiplied by the number of
projected new units, except for the 122 unit senior housing project, wherein 1.5 persons per
dwelling unit was used. Between January 2000 and June 2005 population is projected to increase
by 11,849 persons or 2,154 persons per year ( over 5.5 years), resulting in a population growth rate
of 4.2% a year. Detailed population and housing projections are located in the appendix.
Housing stock is projected to increase by 4,609 dwelling units between January 2000 and June,
2005. The total number of housing units in the City is expected to increase to 25,481 dwellings by
June 2005. The average annual growth rate is projected to be 4% a year.
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San Clemente
Housing Element 2000 24
Table 2- 11
City of San Clemente
Population and Housing Growth
January 2000- June 2005
Population
2000
Projected
Population Growth
2000- 2005
Projected
Population
2005
50,302 11,849 62,151
Housing Units
2000
Projected
Housing Growth
2000- 2005
Projected
Housing Units
2005
20,872 4,609 25,481
2.214 Regional Housing Needs Assessment ( RHNA)
According to State Law, local governments’ housing needs assessments must include their share
of the projected needs for housing in the region. The Southern California Association of
Government ( SCAG) has prepared the data for the City’s regional housing needs per income
category. The formula for future housing needs reflects the number of new housing units and
households which are expected to reside in the city ( future demand), plus an adequate supply of
vacant housing to assure mobility and new units to replace losses. On November 8, 1999, SCAG’s
Regional Council adopted construction need and income distribution numbers based on household
growth projections determined by the City of San Clemente the Center for Demographic
Research at Cal State University at Fullerton. The analysis was based on historical trends in the
older, developed areas of the city and specific plan projections for the Ranch developments.
Three factors were considered in determining housing unit growth: household growth, unit
vacancies, and expected demolitions.
The following formula is derived by SCAG to determine future need:
Future Need = Household Growth less Vacancy Adjustment + Demolition Adjustment
San Clemente’s projections amount to the following:
2,719 dwellings = 2,893 - 271 + 97
The vacancy adjustment in the RHNA involves determining the City’s ideal vacancy rate based
on the ratio of single - family to multi- family units and then multiplying each ratio by the ideal
vacancy rate. According to SCAG the ideal vacancy rate for single family housing is 2% and
5% for multi- family housing. The State Department of Finance projected a vacancy rate of
10.81% for San Clemente in 2000. This includes both single and multi- family housing. Vacancies
are noted to be higher in coastal cities due to the number of second vacation homes that are not
primary residences. The vacancy adjustment was determined to be 271 dwelling units over the
next five years.
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San Clemente
Housing Element 2000 25
An adjustment of 97 units for replacement of demolished units was calculated. Given the
assumptions of household growth, vacancies, and demolitions, the RHNA projects 2,791 housing
units will need to be added to the housing stock by June, 2005 to meet regional housing needs.
The City has vacant land zoned to meet this need.
2.215 Residential Development Potential and Regional Housing Needs
The projected construction needs for San Clemente as determined by the 1999 RHNA is 2,719
housing units. The following table presents the projected regional housing needs by income and
the projected development of housing units as determined by the Community Development
Department.
As indicated in Table 2- 12, the City is able to meet the regional housing needs by income
group. This will occur with land currently vacant in the City by zoning category in existing multi-family
neighborhoods for the very low and low income categories and projected development
on Ranch properties for Talega, Rancho San Clemente, Marblehead and Forster Ranch.
Besides vacant in- fill land, there is one 16 acre lot in the Talega Village Center zoned Medium
High Density which could house 333 very low and low income apartments. This site is
projected to be developed by 2005.
Table 2- 12
City of San Clemente
Regional Household Needs by Income Group
1998- 2005
Income Category
RHNA
Housing
Units
Percent
of Total
Projected
Vacant
Land
Yield at
Build- out
1998- 2012
Projected
Units
1998- 2005
to be built
within City
Very Low
0- 50% of med. income
545 20% 600 560
Low
51- 80% of med. income.
308
11% 574 354
Moderate
81%- 120% of med. income
550 20% 903 576
Upper
over 120% of med. income
1,317 48% 2,748 1,712
Total Housing Units 2,719 100.0 4,825* 3,202*
* Includes 179 moderate and upper income S. F. units built in 1998
One 4 acre site has received Planning Commission approval for the development of a very low
income Senior apartment complex with 122 dwelling units. It is projected to be constructed
during 2001- 02. A large 16 acre site in Village 3 town center in Talega is zoned medium high
density ( 15- 24 units/ acre) and has Specific Plan approval for 353 units. Due to the site
conditions, 333 units or 20 units an acre have received entitlement. This site has been projected
as another affordable housing site for very low and low income households. In addition, 28.2
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San Clemente
Housing Element 2000 26
acres with 239 dwelling units are designated for medium density development in Talega. This
site has been projected as a possible affordable site for very low and low- income households.
There are adequate in- fill vacant, medium density sites, commercial and mixed use sites to
provide the needed very low and low income multi- family housing units. Approximately 105
very low and 115 low income units are projected to be built on in- fill sites by 2005. Typical
development during the slower growth of the 1990’ s amounted to approximately 30 new multi-family
units a year as reported in the State Department of Finance housing and population
report. If new projects are encouraged to provide affordable housing, density bonuses and
parking reductions could be given amounting to a projection of 40- 50 new multi- family units a
year over the next five years.
Very low income households will also be served through the conversion of existing motels to
Single Room Occupancy units ( SRO’s), and through the acquisition of substandard multi- family
housing converted to below market rate housing. Non- Profit Housing Organizations such as
Mary Erickson Community Housing and Laura’s House already have development applications
in process for 13 multi- family units. The acquisitions would be financed with a variety of private
and public financing sources including the City’s Redevelopment Housing Fund, In- lieu Housing
Fees, Federal HOME or CDBG funds, and private financing. A minimum of 60 very low
income housing units are projected to be added to the housing stock in this manner over the
next five years. Possible sites include: the conversion of the 20 unit, Algodon Motel ( S. El
Camino Real and Avenida Algodon), various other 10- 40 unit low- vacancy motels along S. El
Camino Real, and existing deteriorated apartment complexes in the center city area, including
W. Canada, W. Escalones, and W. Marquita, to name a few streets.
Regarding land annexed into the City from Talega, the City issues building permits once
LAFCO has an annexation request on file and when the homes are ready to be occupied they
will be within the City of San Clemente. Through this “ rolling annexation” process approximately
one half of the unincorporated land at Talega has been annexed into the City as of June 2001.
Table 2- 13 presents the income distribution of the Talega development to be annexed to the
City. The distribution of the units is based on the County requirements as produced and
recommended by the Center for Demographic Research/ SCAG. A total of 57.5 acres are
zoned as medium high density and 4 acres are zoned as high density. Jamboree Housing
Corporation has received an option to build 186 very low income apartment units on 10 acres
of land which will be annexed into the City. It is projected to commence construction in the late
fall of 2001, if tax credits are received by June, 2001. In addition to this project, another 7- 8
acre medium high density site could provide 155 apartment units at 20 units an acre for a total
of 341 very low income apartment units. BRE developers have received entitlements to build a
market rate apartment complex of 252 units which is expected to begin construction in 2001.
The units are projected to house both low and moderate income households. Another 4 acre
site is also being considered by the same developer to build 100 more moderate income
apartment units. Lastly, 373 condominiums at 15 units an acre could be built in the medium high
density area for moderate income households. For upper income households 848 single family
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San Clemente
Housing Element 2000 27
units are projected to be built by 2005 in the Sphere of Influence. Roughly 150 acres of low
and low medium density land is available for development of these homes.
Table 2- 13
Transfer of RHNA Housing Units from County Unincorporated
Talega Development to City of San Clemente
Regional Household Needs by Income Group
1998- 2005
Income Category
RHNA
Housing
Units
County
Transfer
Percent
of Total
Projected
Units
1998- 2005
Very Low
0- 50% of med. Income
336 18% 341
Low
51- 80% of med. income.
242
13% 250
Moderate
81%- 120% of med. income
410 22% 425
Upper
over 120% of med. income
876 47% 848
Total Housing Units 1,864 100.0 1,864 *
* Includes 162 moderated and upper income units built in 1999
Table 2- 13A presents the total RHNA housing requirements to be transferred from Talega and
the total RHNA requirements from the City. The third column totals both RHNA requirements
and the fourth column presents the projected number of units to be built in the City by income
category between 1998 and 2005. It is projected that the City will meet the RHNA
requirements in all categories with the total surpassing the RHNA housing needs by 482 housing
units.
Table 2- 13- A
TOTAL PROJECTED UNITS TO BE CONSTRUCTED
Talega Annexation and City Housing Units
Regional Household Needs by Income Group
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San Clemente
Housing Element 2000 28
1998- 2005
Income Category
TOTAL
TALEGA
RHNA
Units
TOTAL
CITY
RHNA
Units
TOTAL
RHNA
Units
TOTAL
Projected
Units
1998- 2005
Very Low
0- 50% of med. Income
336 545 881 901
Low
51- 80% of med. income.
242
308
550 604
Moderate
81%- 120% of med. income
410 550 960 1,001
Upper
over 120% of med. income
876 1,317 2,193 2,560
Total Housing Units 1,864 2,719 4,584 5,066*
* Includes 179 moderate and upper income S. F. units built in 1998 and 162 moderate and upper income units
built in 1999 in Talega
2.216 Quantified Objectives for Construction, Rehabilitation, and Conservation
The State requires cities to determine the maximum feasible units to be constructed, rehabilitated
and conserved for each income group that could be achieved during the next five years. Based
upon the needs assessment, the regional housing needs, historical trends and projected new
development, the following numbers were generated:
Table 2 - 14
Quantified Objectives for Construction, Rehabilitation and Conservation
City of San Clemente
1998- 2005
Income Levels # of d. u. Construct. # of d. u. Rehab. # of d. u. Conservat.
Very Low 901 270 280
Low 604 10 20
Moderate 1,001 0 0
Above Moderate 2,560 0 0
Total 5,066 280 300
The total number of constructed units was determined based on 4,587 new dwellings built on
ranch properties and 479 new dwellings on vacant in- fill lots for a total of 5,066 new units
between 1998 and 2005. The City operates its own Home Rehabilitation Program with CDBG
funds. The number of units to be rehabilitated was based on an historical average of ten
properties a year rehabilitated with an average 4 units per building. Through the Home
Rehabilitation Regulatory Agreements with the property owners and non- profit organizations,
300 units are projected to be conserved for very low and low income households. The City’s
cooperation agreement with the County of Orange ends June 30, 2003. This will terminate the
City’s relationship with the County in regards to the allocation of funds from HUD. The City
has reached 50,000 in population and will be working to become an Entitlement City receiving
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San Clemente
Housing Element 2000 29
HUD funds directly by 2003- 04 fiscal year. The Home Rehabilitation Program is expected to
continued, although there may be a temporary slow down when administration of the funds
changes.
The preservation of assisted units is to be considered annually as one of the Housing Element’s
policies and programs. There is only one Senior 202 Housing Project in San Clemente. The
other Inclusionary Units built in the 1980’ s have met their regulatory obligations ( 10 years) in the
late 1990’ s. No at – risk units are projected to be conserved over the next 5 years, however, if
it becomes economically feasible to purchase affordability in privately owned apartment units in
some of the larger existing developments, this will be considered as part of the annual evaluation
of assisted housing.
2.217 Public Services and Facilities
All housing developments need adequate facilities to provide for water, waste disposal,
electricity, natural gas, schools, parks, fire and police protection services. Ordinance 922, the
Growth Management Initiative, requires all developments of 5 units or more to apply for a
development allocation to build housing. The Ordinance requires that each application shall
provide information on the development’s impact upon local public facilities and services. Each
project is then rated based on the ability of existing city facilities to serve the project and the
quality of design and contribution to the public’s welfare. Developments that do not cause new
public facilities, transportation routes or equipment to be generated are given more points than
projects requiring new facilities, roads, etc.. Developments that provide low- income housing
units are entitled to up to 10 bonus points. The need for new facilities, services and roads is
mitigated between the City and developer and often causes housing costs to increase. As
discussed previously on page 2- 6, Ranch Development Opportunities, the City has two
instruments that guarantee that infrastructure will be on time and in place to accommodate
development in any possible phasing scenario. The first document was adopted in 1989 and is
called the Regional Circulation Financing and Phasing Program ( RCFPP) and the second
document is the development agreements agreed to by each major Ranch developer and
adopted by the City Council.
The City of San Clemente extracts groundwater from City owned wells, imports water from the
Metropolitan Water District via the Joint Transmission Main ( JTM) and the South County
Pipeline ( SCP) and produces recycled water at the City’s Recycle Water Treatment Facility.
The City of San Clemente provides for wastewater treatment of all properties within the city at
the San Clemente Reclamation Plant, except for new development in Talega. The Santa
Margarita Water District will provide water and wastewater treatment to the Talega
development. Talega also has acquired capacity in the City’s wastewater treatment plant so that
golf course runoff may be directed to the City’s plant. Solag Disposal provides for all waste
removal from properties within San Clemente.
Consistent with the General Plan and housing policy to site affordable housing close to public
services and facilities, new development in the City is balanced with a mix of employment
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San Clemente
Housing Element 2000 30
centers, parks and recreation, transportation services, and other public amenities. Affordable
housing projects built in the 1980s have bus lines connecting them to employment and shopping
areas in the city. Acquisition and rehabilitation of existing apartment buildings with public funds
will remain focused in the downtown area along El Camino Real, where the majority of
apartment units are concentrated housing lower income households and where access to local
shopping and businesses is more convenient. New development in Talega will also be a mix of
income groups and commercial development with convenient access to the Rancho San
Clemente Business Park and growing Plaza Pacifica Shopping Center.
2.22 Housing Needs Due to Deterioration of Dwellings
Federal and State programs use age of housing to determine the extent of rehabilitation needs in
a city. The accepted standard for determining when major rehabilitation is needed is when a
property is 30 years old or more. As of 1990, approximately 17% of the housing stock was
over 30 years old ( 3,300 properties). The majority of these properties are located on the west
side of the city in the historic downtown area. In 1993, a group of interns from the University of
California at Irvine surveyed 52 streets in 3 target areas to determine property rehabilitation
needs. A total of 1,761 properties were surveyed, 1,212 were multi- family rental properties and
549 were single family properties. The properties with the most significant deterioration were
multi- family. A total of 211 multi- family properties and 110 single family properties were
identified to need extensive rehabilitation. This amounts to approximately 10% of the units 30
years or older. The problem is compounded because the properties needing rehabilitation are
also rented by the lowest income households in San Clemente.
In 1993- 94, the City began receiving funds from the Federal CDBG and HOME Programs to
operate a Home Rehabilitation Program locally. In seven years, 67 apartment buildings and
30 single family homes were rehabilitated. A combination of direct mail and code enforcement
action resulted in the rehabilitation of the most blighted units in town. This stimulated re-investment
in as many non- assisted apartment rehabilitation’s downtown as indicated by the
increase in building permit activity over the last five years. In order to keep rents within HUD
guidelines, household income and rent requirements restrict the funds to either low income,
owner- occupied households or tenant households earning less than 80% of median income.
The City intends to continue this program and anticipates working on 10- 15 rehabilitation
projects a year.
2.23 Housing Needs Due to Population Characteristics and Special Needs
Households
Assuring the availability of adequate housing for all social and economic segments of San
Clemente’s present and future population is a primary goal of the City. In order to determine
whether each income category is adequately served, an analysis of household characteristics is
necessary. In 1990, San Clemente had approximately 16,701 households with a total
population of 41,100. By 2000, 2,146 new housing units and 9,202 persons were added to
the City. Single family detached units increased by 1,779 new units, single family attached
increased by 42 units and multi- family in- fill dwelling units increased by 325 units. In 1990, the
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San Clemente
Housing Element 2000 31
majority of households were families ( 66%) with single person households making up 24% of
the population and unrelated households ( roommates) amounting to 10% of the households in
the City. Until Census 2000 data is provided, considering the number of new single family
housing built over the last decade, it is safe to assume that families will continue to make up the
majority of households in San Clemente.
2.231 Age and Household Size
Age of the population and household size are important characteristics which shape housing
demand. The greatest change in the age distribution of San Clemente has been the increase in
the age group between the ages of 39 and 64 years of age ( an increase from 33% in 1980 to
37% of the population in 1990). To meet this need, new housing production focused on family
housing in the 1980’ s and 90’ s. Accordingly, overall household size has grown in San
Clemente since 1990 from 2.46 persons per household to 3.12 persons per household in
2000. This can be attributed to a number of factors, including an increase in the number of
family households, an increase in immigrant families, and children remaining at home after 18
years old due to the high cost of housing.
The percent of the population over 65 years of age decreased from 15% to 13% of the total
from 1980 to 1990. A total of 5,336 seniors in 3,482 households resided in San Clemente in
1990. A total of 39% of senior households were reported to live alone and of those, 78% were
women. The majority of seniors in town own their housing ( 79% over 65 years old). The
State’s Civil Rights Act disallows age discrimination in housing. However, there is an exemption
for senior housing. New senior housing developments in urban areas under 150 units are limited
to housing persons 62 years of age and older. Senior housing developments over 150 units are
required to provide housing to persons 55 years of age and older. Senior housing projects are
also required to be designed for the physical and social needs of senior citizens. There are no
senior housing projects in San Clemente over 150 units and only 1 Federal 202 senior housing
project with 72 dwelling units. If plans are processed as proposed, the City will have a new
122 unit senior project built in 2001. The following table summarizes the general characteristics
of San Clemente’s resident population from the 1990 Census.
Table 2- 15
San Clemente
________________________________________________________________________
San Clemente
Housing Element 2000 32
Population and Household Characteristics
1990 Census
Type of Household Amount
Total Population
Households
Families
Single Persons
Other households
41,000
16,701
11,033 ( 66% )
3,919 ( 24%)
1,749 ( 10%)
Household Size 2.46
Household Med. Income $ 46,374
Owner/ Renter Ratio 59%/ 41%
Large Households
5 persons +/ Household
Renter
Owner
Overcrowding
1.1 or more persons
per room
1,759 households
1,056 households
703 households
868 units – 5% of households
Type of Household Amount
Overcrowding
Renter
Owner
736 units - 70% of lg. fam. hsld.
132 units - 19% of lg. fam. hsld.
Race/ Ethnicity
Caucasian
Black
Asian
Hispanic
Other
84%
.6%
3%
12%
.4%
2.232 Income and Housing Affordability
Income characteristics of the population are important market indicators because they influence
the price range of housing in the community and the ability of the population to afford housing.
The following tables summarize data from the local Board of Realtors and a staff survey of
rental rates, showing the housing cost and affordability characteristics of San Clemente’s
housing market as it relates to the income of the population.
Table 2- 16
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San Clemente
Housing Element 2000 33
San Clemente Housing Costs *
June 2000
Average Sales Price – 2 bedroom home
Average Sales Price – 3 bedroom home
Average Sales Price - 4 bedroom home
$ 272,500
$ 359,000
$ 485,000
Average Rent – Apartments
1 bedroom ( downtown, no view)
1 bedroom ( Ranch properties)
$ 800/ month
$ 920/ month
2 bedroom ( downtown, no view)
2 bedroom ( Ranch properties)
$ 900/ month
$ 1,200/ month
3 bedroom ( downtown, no view)
3 bedroom ( Ranch properties)
$ 1300/ month
$ 1,350/ month
Average Rent- 3 bedroom home $ 1,800/ month
* South Orange County Board of Realtors, Talega/ Jamboree Mkt. Study 2000
Table 2- 17
Housing Affordability for Very Low Income to Moderate Income Households
HUD Income Categories for Orange County
2000
Income Category Aff. Purchase Price Afford. Housing
Cost
# of S. C.
Households*
Very low
$ 34,800
$ 140,000 $ 870 2,230 ( 12%)
Low
$ 34,800-$ 50,200
$ 140,000 - $ 204,000 $ 870 - $ 1,250 2,230 ( 12%)
Median
$ 50,200-$ 69,600
$ 204,000 - $ 288,000 $ 1,250 - $ 1,740 3,170 ( 17%)
Moderate
$ 69,600- $ 83,500
$ 288,000 - $ 342,000 $ 1,7,40 - $ 2,087 2,420 ( 13%)
* Number of Households is based on the same proportion from the 1990 Census.
Federal standards for housing affordability state that no greater than 30% of household income
should be spent on housing costs. If a household pays more than 30% of their income on
housing, then they are considered an “ overpayer”. In 2000, a median income household
earning $ 69,600 could afford a home costing approximately $ 288,000, based on a 8% interest
rate and a 20% down payment. The lower the mortgage rate, the more expensive home one can
afford, likewise the larger the down payment, the more expensive home one can buy.
In 1990, 1,932 households ( 12%) earned less than $ 15,000 and another 2,010 households
( 12%), earned less than $ 25,000. Affordable housing costs for these households amount to
$ 375 and $ 625 per month respectively. Very low income families are defined as earning 50%
of median income. In 1990, a very low income household of four persons was categorized to
earn $ 22,500. A person earning $ 22,500 a year is earning approximately $ 11.71 per hour, or
represented another way, two persons earning $ 5.85 per hour. Using the 30% of median
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San Clemente
Housing Element 2000 34
income standard for housing costs, the affordable rental price for a very low income household
was $ 562 per month in 1990.
Although household income has increased since 1990, so have housing costs. In 2000, a very
low income family of four is categorized as earning $ 34,800 a year. Spending 30% of their
income on housing amounts to $ 870 per month. Rental rates in San Clemente range from $ 900
to $ 1200 for a two bedroom apartment and up to $ 1,800 a month for a 3 bedroom house,
depending on the amenities and view. Based on these figures, very low income households
earning $ 2,900 a month must spend between 40% and 60% of their income for housing in San
Clemente. If the proportion of low income households remain the same from 1990, it is
projected that 12% - 20% of the households in San Clemente ( 2,000 – 4,000 households) can
not afford market rents and are paying more than 50% of their income on rent.
Extremely low income households are those households earning approximately 26% to 40% of
median income, $ 18,000 - $ 28,000 per year with an hourly wage between $ 9.40/ hr -
$ 14.50/ hr. Twenty- five percent of median income or approximately $ 17,400 is considered
poverty level for a family of four. Affordable housing costs for households earning in the
extremely low income category range from $ 450 - $ 696 per month. Senior citizens earning a
minimum of $ 660 a month in Social Security can only afford rent of $ 220/ month. These rents
are considered below market and are currently only found in non- profit or publicly owned
housing, or by persons utilizing Section 8 housing certificates/ vouchers. Due to these needs, the
primary focus of the City’s Affordable Housing Program is to assist households earning 50% of
median income or less.
2.233 Employment
Employment characteristics are important to housing market analysis because employment is
directly related to income and the ability to afford housing. In addition, the relationship between
the location of housing and the location of employment has an impact upon transportation
systems. San Clemente is south- west of the major employment centers in Orange and Los
Angeles Counties, and 30 miles north from Camp Pendleton and Northern San Diego County.
Thus, substantial commuting occurs between these employment sites and housing areas in the
City as the higher wages attract employees willing to incur the costs of commuting. However, a
need for lower wage labor for the commercial and service centers continues to increase as
economic development in San Clemente takes a higher priority.
The 1990 Census reported a total of 22,121 people in the labor force living in the City.
Approximately 4,700 people ( 21%) were employed in lower wage industries, including: the
service industry, light industry fabricators or laborers, or were in the farming, forestry or fishing
industry. Low wage jobs produce a need for affordable housing. The continued development
of tourist related industries, including the development of 2 large hotels in Dana Point has put
pressures on the tri- city area ( Dana Point, San Clemente and San Juan Capistrano). For
example, in 1996, the Ritz Carlton Hotel reported that they have 393 rooms and 448
employees earning less than $ 11 per hour. A comparable hotel, the Laguna Cliffs in Dana
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San Clemente
Housing Element 2000 35
Point has 350 rooms, and although employment information was deemed confidential, another
400 low- wage employees are projected. Assuming 850 low- wage jobs generate a
conservative need for an additional 425 low- income housing units locally, it is apparent that
continued growth in the tourist and service industries will increase the demand for affordable
housing. The following table lists the type of occupations of residents, the percent and number
of persons employed in each one.
Table 2- 18
Occupations of San Clemente Residents
1990 Census
Occupation Percent of Total Total Employed
Managerial/ Professional
34%
7,444
Technical, Sales, Admin. 34% 7,499
Service 11% 2,461
Farming, Forestry, Fishing 3% 536
Precision Production
Craft and Repair
10% 2,508
Operators, Fabricators and
Laborers
8% 1,673
Total Employed 16 yrs.+ 100% 22,121
Table 2- 19
Labor Market within San Clemente
State Employment Development Department
1996
Industry Establishments Employment Percent of
Total
Agriculture 47 390 1%
Construction 155 2,669 9%
Manufacturing 142 3,778 12%
Trans, Elec., Gas, S
anitation
34 767 3%
Wholesale 136 2,774 9%
Retail 279 7,529 24%
Fin, Ins, Real Est. 111 1,328 4%
Services 535 9,139 30%
Local Gov’t. 1 250 est. 1%
Non- classified 75 2121 7%
TOTAL 1,515 30,745 100%
Without more information it difficult to more than estimate how many of the residents live and
work in San Clemente, and to what extent the City imports low wage earners to fill employment
demands. But it is evident that there are 2,461 residents ( 11%) employed in the Service Sector
and 9,139 ( 30%) Service Sector jobs within town. There are 7,499 ( 34%) residents employed
________________________________________________________________________
San Clemente
Housing Element 2000 36
in the sales, technical and administrative work and another 7,444 ( 34%) residents are employed
in Managerial/ Professional jobs, whereas there are roughly 11,900 ( 38%) jobs in town involving
the same sectors. It appears that San Clemente imports many people into town for lower
paying jobs and many people leave town for higher paying jobs. There is ample new housing
for higher income employees, but fewer new housing opportunities for lower income employees.
The City’s Housing Strategy includes both the Inclusionary Housing Program for development
of new housing and the Redevelopment Housing Program which addresses the preservation of
existing lower income housing stock to ensure all types of housing are provided in San
Clemente. But with the cost of land, fees, and construction costs it is impossible for developers
to build housing affordable to households earning 50% or less than median income without
government financing and subsidies. Inclusionary requirements are necessary to require the
developer to make provisions for all economic segments in their project, or pay an in- lieu fee so
that the City can utilize the funds for below market rate housing.
2.234 Special Needs Housing
Special needs housing relates to those people who have as a population group, difficulty in
finding suitable housing. These groups include: overpayers, disabled households, farm workers,
elderly, large households, families with female heads of households, and families in need of
emergency shelter. Included in this analysis are poverty level households and households paying
more than 30% of their income on housing.
“ Overpayers” - As discussed, households paying more than 30% of their income on housing
are considered “ overpayers”. However, paying more than 30% of your income on housing is
very common in California. The 1990 Census reported 43% of all households in San Clemente
overpaid for housing. Overpaying for housing affects renter households earning less than 50%
of median income ($ 34,800 in 2000) much more seriously than owner households earning
median income or above ($ 69,600 + in 2000). In 1990, 95% of all renter households earning
less than $ 20,000 ( 1,880 households) overpaid for their housing, whereas, only 49% of all
owners earning less than $ 20,000 ( 327 households) overpaid for their housing.
“ Homeless” - The Orange County Continuum of Care Coalition began in 1998 after HUD
determined the County had not adequately planned for the utilization of federal Homeless funds.
County and City governments, and non- profit providers had to provide documentation on the
homeless need to HUD and develop a plan to utilize funds which will meet the needs of the
different populations. Since 1998, an annual needs assessment was undertaken by Infolink for
the County. Non- profit service providers documented that there are approximately 18,600
homeless in Orange County. The sub- populations that make up the homeless include: Chronic
Substance Abusers, Seriously Mentally Ill, Dual Diagnosed ( both drug users and mental illness),
Veterans, Persons with AIDS/ HIV, Victims of Domestic Violence, Homeless Youth ( ages 17-
21) and the Physically Disabled. There are numerous factors that contribute to homelessness in
Orange County. Problems with obtaining and keeping employment, limited education, mental
illness and substance abuse are some of the reasons. An increasing trend contributing to
homelessness is the fast- rising rents and inadequate federal rental subsidies for the lowest
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Housing Element 2000 37
income and disabled households. South Orange County being a desirable place to live, rents
have increased faster than North Orange County and as the economy has improved, vacancies
have lessened, rental properties no longer needed to rent to households with Section 8
certificates, resulting in evictions of many very low income households from South Orange
County. Even the large apartment complexes in San Clemente very seldom rent to Section 8
certificate holders. This is unfortunate because even though the rent is guaranteed by the
Federal Government, many property owners do not want to deal with the bureaucracy unless
they are forced to because of high vacancies.
At an April 1999 town- hall meeting sponsored by UCI entitled “ Hard Choices: Housing and
Community through 2020”, the consensus was the lack of affordable housing is no longer just
a social issue but a threat to Orange County’s prospering business climate. In October 1999, a
3 day Future Search Conference entitled “ Where will working families live earning $ 10 or less
and hour” was held. As a result of this the Future Search Affordable Housing Coalition was
formed of City and County government leaders, non- profit organizations and business leaders to
identify projects and form coalitions to promote and build affordable housing in Orange County.
It is well known in California that 34% of Orange County renters are unable to afford fair
market rent on a one- bedroom apartment, and 42% cannot afford rent on a two- bedroom
apartment. Such households would have to work 105 hours a week ( 2 persons at 50 hours +),
at minimum wage, to afford the average rent on a two bedroom apartment. In order for low
income households to remain in Orange County, this will lead to overcrowding in some
properties, as 3 wage earners may be needed to afford the rent on a 2 or 3 bedroom dwelling.
Single parent households are especially impacted by the high cost of rent. Not only do they
find it difficult to find room mates, when they do, it’s usually other single parents with children as
well. Many senior citizens are also providing housing for their grown children and grandchildren
in order to prevent them from becoming homeless.
The affordable housing crisis along with rising rents and homelessness is an big issue in San
Clemente. The Ecumenical Service Alliance ( ESA) was the primary homeless service provider
in San Clemente until 1999. After the County of Orange bankruptcy, many non- profit agencies
had to reduce their services, and like ESA had to sell off their assets. Since then, the Salvation
Army, Family Assistance Ministries, Laura’s House, Henderson House, and Toby’s House, to
name a few, have filled in some of the gap by assisting many homeless and very low income
households with emergency services, food, clothing, rental assistance and shelter in San
Clemente. While it is unknown how many homeless people live in San Clemente, non- profit
service agencies have assisted 50- 100 homeless men and women on a regular basis with
emergency food, clothing, toiletries and bus fare. Between 1997 and 1999, the San Clemente
Homeless Task Force operated a cold weather shelter in local churches housing approximately
a dozen single people a night. Homeless families were given vouchers at local motels. Because
there is no shelter in town, motels have become one of the few housing resources for homeless
families, with the Algodon Motel being the most well known. Rents range from $ 120-$ 180 a
week, which is now quite a bit less than renting a small apartment unit. However, this type is
housing is teeming with problems. The rooms are too small and unsanitary, when bathrooms
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Housing Element 2000 38
serve as kitchens, and unsafe, as prostitution and drug activity is not uncommon at many motels
in Orange County. All evidence of homelessness point to more efforts are needed to move very
low income families into the continuum of care and to increase permanent below market
housing.
During 1999, Family Assistance Ministries assisted 1,162 San Clemente residents with
homeless prevention services and 238 residents received shelter and/ or emergency services and
counseling from Laura’s House. The Salvation Army assisted 495 families with basic necessities
and utility and rent assistance. Henderson House assisted 53 persons with transitional housing
and Toby’s House provided shelter to 6 unwed mothers and their children last year. CSP
Youth Shelter, although located in Laguna Beach housed 10 local youth and provided
counseling to 28 San Clemente residents. The City has provided approximately $ 30,000 a year
for the last six years to help these organizations pay for operating costs of their homeless
prevention programs. Another $ 1.2 million has been spent in Redevelopment Housing funds
over the past 8 years for the acquisition, rehabilitation and new construction of transitional and
permanent housing through Laura’s House and Mary Erickson Community Housing.
A list of Orange County shelter services and permanent affordable housing is included in the
Appendix.
“ Disabled” - About 10% of the United States population has a severe disability, or is unable to
perform at least one functional activity, or one or more socially defined roles or tasks. In San
Clemente, the 1990 census reported 10.4% of the population ( 3,417 persons) over 16 years
old has a mobility or self care limitation. The State Social Security Disability payment averages
$ 620 per month. Census data does not provide information on the household income of
disabled households, but it is apparent that one could not subsist on $ 620 per month, unless
housing was shared or Section 8 certificate was utilized by the household.
The two most prevalent housing needs for persons with disabilities are accessibility and
affordability. Individuals who are mobility impaired usually need housing that can
accommodate wheelchairs or have level entry ways and no interior or exterior stairs.
Implementation of the ADA Act through the Building Department will ensure that accessibility is
provided in new developments and rehabilitation projects. The State of California adopted
building regulations that required any privately funded development with five or more units of
multi- family rental housing to include handicapped adaptability features. In order to have these
requirements waived, the developer must provide evidence that the handicapped requirements
cause the project to become financially infeasible or must provide that the modifications would
necessitate the removal of major structural elements. In addition, rental property owners are
required by law to allow the disabled tenant to pay for the adaptability of their own rental unit.
“ Farmworkers” - Farmworkers or agricultural employees are defined as those households
whose wage earners make their living through seasonal agricultural work and who move with
the seasons to different farming areas or communities. The 1990 Census identified 536 persons
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Housing Element 2000 39
residing in San Clemente and employed in either farmworking, forestry, or fishing and 390
agricultural workers employed within San Clemente. There is no available data on migrant
workers living in San Clemente, therefore, farmworkers or agricultural employees are
considered to be in the very low and low income household needs category.
“ Seniors” - The 1990 Census reported that 5,336 persons were over the age of 65. This
amounted to 3,482 households or 21% of the total households in the City. Seventy- nine
percent ( 2,750 households), live in owner- occupied housing and 21% rent ( 732 households).
Five percent of the senior population ( 261 people) live on incomes below the poverty level.
The poverty level for a single person was $ 7,470 in 1995. The average social security income
for a single poverty level senior is approximately $ 650 per month, resulting in an annual income
of $ 7,800. Seniors receiving less than $ 620 in social security per month, with assets less than
$ 5,000, receive supplemental social security income to equal the subsidence level of $ 620 per
month. As with other fixed or low income populations, seniors need affordable housing.
Proximity to shopping, services, community facilities, and public transit are also important.
There is one Federally funded senior housing facility in San Clemente - “ Casa de Seniors”. It
consists of 72 dwelling units housing a total of 80 persons, including couples, singles or disabled
persons over 18. The households pay 30% of their income on housing costs. Historically, 38%
of the Orange County Housing Authority ( OCHA) Section 8 certificates have gone to seniors.
Using this average, it is estimated that 60 seniors receive an OCHA rental subsidy. Counting
both senior housing subsidies, a total of 132 senior households are receiving some form of
housing assistance. If all of the households are below poverty level, then it can be projected
that 51% of the poverty level seniors are receiving housing assistance in the City.
Another senior housing project was supported by the City to assist 15 mobilehome owners
purchase their lots in a mobilehome park in conjunction to the State CHAP and MPROP
programs. City Redevelopment Housing Funds provided loans amounting to over $ 400,000 to
15 households earning less than 80% of median income ( five households earned below 50% of
median income) for a period of 15 years. The loans are payable upon death or transfer of the
property and the loans can be assumed by other qualified homebuyers.
“ Female Head of Household” - A total of 1,173 female heads of households were reported
by the 1990 Census to live in San Clemente. The housing needs of single parent households
typically include minimal maintenance housing which is close to employment, schools, shopping,
day care, and recreational needs. The housing needs of this group are of concern because
incomes are generally less and social service needs are higher than married households. A total
of 357 female headed households lived at or below the poverty level. The poverty level for a
family of four is approximately $ 15,500. Approximately 100 OCHA Section 8 housing
certificates support families locally.
The County of Orange Consolidated Plan reported 1,302 families to be in need of housing due
to domestic violence. Laura’s House is one of four domestic violence shelters in Orange
County. As stated previously, they assisted 238 local families with couseling and/ or shelter in
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Housing Element 2000 40
1999. They have recently purchased a duplex for a second step transitional housing program.
In late 1998, the City provided $ 400,000 in funds to purchase 4 vacant lots for a mixed use
project including administrative and counseling offices, day care and transitional housing with six
apartment units. Architectural designs have been completed, and processing of the plans is
underway.
“ Large Families” - There were 1,759 families with over 5 persons in their households in
1990. A total of 1,056 were renters and 703 were owners. There are very few options for
large, low income families but overpaying for housing in San Clemente today. Only 100 families
in San Clemente receive Section 8 housing certificates. The certificates enables families to pay
only 30% of their income on housing, the difference in rent is subsidized by the Federal
Government. Many of these families must take in another adult to assist in paying the rent,
especially if they are able to rent a house. This is discussed further under the following section
entitled “ overcrowding”.
The highest priority of the City’s Redevelopment Agency Housing Program is to increase the
stock of affordable housing for very low income households. The City assisted the Mary
Erickson Foundation in acquiring three different buildings with a total of 19 family units since
1994. Two were rehabilitated and one is in the process of financing a demolition and
reconstruction of seven 3 bedroom, 2 bath units for large, very low income families. A
combination of Redevelopment Housing Funds, Federal HOME funds and private loans
financed the purchases. Presently very low income families in the Mary Erickson apartments
are paying below market rents between $ 600 and $ 750 a month for two and three bedroom
apartment units. The City also recently signed an Option Agreement with the developers of
Talega to provide 10 acres of land for a large family apartment project. The City assigned this
option to a non- profit housing developer, Jamboree Housing. The plans are for development of
186 two and three bedroom apartments serving very low income families.
2.235 Overcrowding
Overcrowding is a measure of the number of people in a house. It can serve as a warning sign
that a community does not have housing units with enough bedrooms to house large families in
an affordable manner. The Federal definition of overcrowded is applied to units with more than
1.01 persons per room per unit. Large families are considered households with 5 or more
blood, marriage or adopted relations in one household. In 1990, San Clemente had 1,759 large
households or 10% of the total households in the City. Of the large households 60% were
renters, and 70% of the large renter households lived in overcrowded living quarters. The
remaining 40% of the large households owned their own home and only 19% of those
households lived in overcrowded situations. These figures indicate that there are not enough
larger rental units affordable to lower income large families.
2.236 Summary of Needs Assessment
In summary, households earning 50% of median income or less are overpaying for housing and
in most cases 50% or more of their income or double up with roommates or extended family
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Housing Element 2000 41
members to afford housing. Families earning between 60% and 80% of median income able to
afford market rate housing in most of the rental units available, although many of them are
considered “ overpayers” paying more than 30% of their income on housing. Households earning
less than 50% of median income had to overpay in 95% of all renter households and 49% of all
owner occupied households in 1990. Although the State Department of Finance has reported
the vacancy rate to be approximately 10.8% over the last decade, this is more reflective of the
number of second homes left vacant than apartment vacancies. A recent marketing study done
for Jamboree Housing reported vacancy rates in San Clemente rentals to be between 2% and
4% in 1999. There are four rental housing projects providing 91 units of below market rate
housing, these include the Casa de Seniors and the Mary Erickson Apartments. The City’s
Rental Rehabilitation Program provides matching grants to private property owners of low-income
rentals in exchange for four years of rent regulation. Over 60 properties with 300 units
have had their rents voluntarily regulated over the last 8 years of the program. Rental properties
are painted, given new driveways, roofs, plumbing and electric upgraded, as long as low-income
households reside within the units at HUD prescribed rent levels during the four year
agreement period. Two privately owned rental properties providing a total of 36 rental units
have ten year rental agreements to house very low income households at correspondingly low
rents. Utilizing both Redevelopment, Housing In- lieu Fees, Federal Funds and Tax Credits, the
City plans to work with Non- Profit Housing Organizations to provide additional affordable
housing units to households earning less than 50% of median income. The following table
identifies the special needs housing groups and the affordable rental units or housing subsidies
available locally.
Table 2- 20
San Clemente Special Needs Housing
1990 Census Data and 2000 Affordable Units
Group Number of Persons/ Hshld. Affordable Units or
Housing Subsidies
Large Families 1,056 Renter Households
736 Overcrowded
· Approx. 70 Section 8
Certificates for families
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Housing Element 2000 42
are in use in the City
· Mary Erickson Community
Housing, 3 properties
19 2 & 3 bedrm units
Overpayers earning less
than $ 20,000
1,880 Renter Households
327 Owner Households
(#’ s may be duplicated in other
categories)
· Section 8 certificates
· 36 units in private rental
properties w/ 10 yr. rental
agreements with City
Homeless
60- 150 persons ( varies)
· 24 beds – Henderson House
· 22 beds + cribs- Laura’s
House, domestic violence
shelter & Trans. Housing
duplex
· Toby’s House serves 6
unwed mothers and their
children
· Shelter provided in motels
by Non- profit organiz.
Disabled with a mobility
or self- care limitation
With a work disability
3,417 persons
2,732 persons
· 6 units available in Casa de
Seniors
· Section 8 certificates
Seniors
Poverty level
5,336 persons
261 persons
· Casa de Seniors – 72 units for
both seniors and disabled
over 18 yrs.
· 60 Section 8 certificates
Poverty level persons and
households
Married Households
Male head of household
Female head of household
Total Female headed households
2,852 persons live in 702
households
257 households
88 households
357 households
1,173 households
· Section 8 certificates
Orange Co. Housing Authority
opened up waiting list in 1998,
expect to serve approx. 1000 new
families a year.
2.3 Equal Opportunity Housing
Equal opportunity includes providing housing opportunities for all people, regardless of race,
color, religion, sex, marital status, age, national origin, ancestry or disability. The Orange
County Fair Housing Council provides local residents with information and investigates
discrimination complaints.
2.4 Coastal Housing
The Coastal Zone is the area essentially located between the Pacific Ocean and the San Diego
Freeway ( Interstate 5). The area consists of approximately three square miles. It is estimated
that 85% of San Clemente’s current affordable housing stock is within the Coastal Zone, with
approximately 6,300 multi- family dwelling units. Two of the census tracts in the coastal zone,
tracts 421.07 and 421.08 also house the lowest income groups in the City. In 1990, the
median income in these tracts averaged $ 31,585, which was substantially lower than the median
in