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HomeMy WebLinkAbout2007/03/20 Item 5 CITY COUNCIL AGENDA STATEMENT ~I!?::. CITY OF - f CHUIA VISTA ITEM TITLE: SUBMITTED BY: REVIEWED BY: March 20, 2007, Item~ "THE LANDINGS AT WINDING WALK" AN AFFORDABLE HOUSING DEVELOPMENT RESOLUTION OF THE CITY COUNCIL OF THE CITY OF CHULA VISTA CONDITIONALLY APPROVING FINANCIAL ASSISTANCE, SUBJECT TO FUTURE APPROPRIATION FROM THE HOME INVESTMENT PARTNERSHIP (HOME) PROGRAM IN AN AMOUNT NOT-TO-EXCEED $920,000 TO CHELSEA INVESTMENT CORPORATION, FOR THE DEVELOPMENT OF THE PROPOSED 92-UNIT "THE LANDINGS AT WINDING WALK" ~:./ ACTING DIRECTOR OF CO~UNITY DEVELOPMENTP' INTERIM CITY MANAGER (II 4/STHS VOTE: YES D NO ~ BACKGROUND On September 5, 2006, the City of Chula Vista and Brookfield Shea Otay, LLC, a California Limited Liability Corporation, entered into an Affordable Housing Regulatory Agreement to provide affordable for-sale housing in Neighborhood R-19 ofOtay Ranch Village Eleven. This Agreement was entered into to satisfy the master developer's affordable housing obligations to provide 207 total affordable units (92 low-income and 115 moderate-income) under the City's Balanced Communities Policy of the Housing Element. Since the execution and subsequent recordation of this Agreement, the master developer has requested that the City of Chula Vista consider revising the affordable housing development and the related Agreement to allow the affordable units for low-income households to be rental rather than for-sale housing, while continuing to provide homeownership opportunities for moderate-income households. Chelsea Investment Corporation (CIC) has been selected by the master developer to pursue development of the affordable rental housing on the R-19 site. CIC is currently in the process of securing financing for the project and is requesting consideration of fmancial assistance. 5-1 March 20, 2007, Item~ Page 2 of 8 ENVIRONMENTAL REVIEW The Environmental Review Coordinator has reviewed the proposed project for compliance with the California Environmental Quality Act and has determined that the proposed project was adequately covered in previously adopted Final Second Tier Environmental Impact Report, EIR 01-02. Thus, no further CEQA review is necessary. The City's HOME funds will be the source of fmancial assistance. Therefore, as required by the HOME Program, the project must also be reviewed under NEPA. Funding of the loan will be conditioned upon the completion of all required review under NEP A. RECOMMENDATION It is recommended that the City Council take the following actions: 1. Direct staff to bring back to Council for its consideration an amendment to the Affordable Housing Regulatory Agreement for Neighborhood R-19 in Otay Ranch Village Eleven replacing the obligation of 92 affordable for-sale units for low-income households with 92 affordable rental units, concurrently with consideration of all other agreements and documents necessary for the financing of the proposed rental housing development. 2. Adopt the resolution conditionally approving financial assistance of $920,000 from the HOME Investment Partnership Program to Chelsea Investment Corporation for the development of the proposed The Landings at Winding Walk. BOARDS/COMMISSION RECOMMENDATION On February 28, 2007, the Housing Advisory Commission voted to recommend the development of The Landings at Winding Walk as an affordable rental community and the conditional approval of HOME funds to assist in its financing. On August 1, 2005, the Design Review Committee (DRC) reviewed and approved the proposed site plans and architectural elevations for the 92-unit The Landings at Winding Walk. DISCUSSION Housinl! Element Requirements The City's State-mandated Housing Element, which was adopted by the City Council in December 2006, requires the provision of housing for all economic groups and distribution of affordable housing developments throughout the City. The City's strategy to implement this mandate is to require 10 percent of any new subdivision in excess of fifty (50) units to be made affordable for low and moderate-income families (5% low and 5% moderate) and to balance affordable housing development throughout the City. The primary objective of 5-2 March 20, 2007, ItemL Page 3 of8 this policy is to increase affordable housing opportunities in the new planned communities of eastern ChuIa Vista so that residents, particularly low-income households, have equal housing choices throughout the City. Affordable Housine: Oblie:ation Under the City's Affordable Housing Program, the master developer of Otay Ranch Village 11 ("Winding Walk") has an obligation to provide a total of 207 affordable units: 92 low-income and 115 moderate-income. The master developer had originally proposed satisfying their affordable housing obligation through a for-sale project of 239 three-bedroom units, known as "The Landings," located on the corner of Discovery Falls Road and Crossroads Street. Ninety- two of the units were to be available as low-income for-sale units, 115 as moderate- income for-sale units, and 32 as market rate/unrestricted units. On September 5, 2006, the City and master developer executed and recorded against the property an Affordable Housing Regulatory Agreement that detailed implementation of this project, as described above. Proposed Alternative At this time, the master developer is proposing an alternative to the original project. The Landings project would be revised to allow the 92 units for low-income households to be rental housing rather than pursuing a first time homebuyer project. Chelsea Investment Corporation (CIC) has been selected by the master developer to develop and construct The Landings as a rental community. Other than the tenure (rental versus owner- occupied), all aspects of the project site plan and design will remain as approved by the Design Review Committee. The master developer is proposing rental housing for the low-income units based upon the increasing difficulty in developing and implementing successful homeownership opportunities for low-income households in Chula Vista and throughout the region. A variety of reasons can be attributed to this difficulty: housing needs, current market conditions, and difficulty finding qualified applicants. Rental housing within the Winding Walk community can also serve to meet a great demand for affordable housing and offer a variety of housing types in an area dominated by higher priced for-sale housing. Actions required by the City to revise the project to 92-units of affordable rental housing would include the reconveyance of the existing Affordable Housing Regulatory Agreement on the title of the property, and the recordation of two new agreements (one to address the 92 low income units and one to address the 115 moderate income units). These agreements will be brought back to City Council for approval. No further discretionary actions would be required. 5-3 March 20, 2007, Item~ Page 4 of 8 Housing Needs and Balanced Housing According to the 2000 Census, over 60% of Chula Vista residents qualified as low- or very low-income (earning less than $52,000 per year for a family of four). Based upon their income and current housing prices, market rate homeownership is not affordable for many lower income households. While homeownership caiJ be a stepping stone for low-income buyers to gain equity and provide their family with a better quality of life, owning a home is also a very expensive and demanding choice for those on a fixed income. In addition to the monthly mortgage and insurance costs, the continuous expenses for home improvements, repairs, and maintenance can make homeownership more unaffordable for low-income families. For many low-income families, rental housing is a more appropriate option. In addition, the majority of the City's rental housing supply is located in the western portion of the City (55%), while the east (east of 1-805) offers predominately owner occupied units (84.2%). In recent years, the City has experienced the conversion of nearly 900 market rate rental units in the east to condominiums, further impacting the existing supply of rental housing in this area. The Winding Walk community, as well as other neighboring Otay Ranch communities, offers various types of homeownership opportunities, such as single family detached homes, rowhomes, and condominiums, but has no affordable or market rate rental housing constructed or planned. The Landings will satisfY the affordable obligation for Village II. The location of The Landings provides an ideal site for an affordable rental development, with its close proximity to transportation links, substantial commercial developments at Eastlake Terrace and Otay Ranch Town Center, middlelhigh school, the planned Eastern Urban Center and the University/Regional Technology Park site. The proposal to develop The Landings as an affordable rental community would assist in meeting goals identified in the recently adopted 2005-2010 Housing Element by encouraging a balanced housing stock and variety of housing choices in the eastern portion of the City. Market Conditions As of 2006, the average price for a medium density attached home in San Diego County was approximately $440,000 and $825,000 for a single family home. The overall median price of a home was $550,000. 5-4 March 20, 2007, Item~ Page 5 of8 To afford a median-priced home in San Diego County, buyers need an annual income of about $134,000.1 In Chula Vista, the area median income for 2006 was $64,900. Therefore, it is not surprising that less then 10% of the current population can afford homeownership.2 As housing prices escalate, subsidy levels to qualify low-income buyers for affordable for-sale projects also increase. .At the City's most recent affordable for-sale project, City subsidies ranged from $172,000 to $192,000 per low-income unit, with a market price ranging from $344,000 to $410,000. Unlike rental units, which may provide housing for numerous low-income families over the life of the project, for-sale units often benefit only one family, the initial purchaser. A recent market study completed by the master developer for The Landings echoed similar concerns regarding the pricing of homes and the potential pool of qualified low- income homebuyers. The conclusions in the study raised concerns over the master developer's ability to sell 92 low-income for-sale units. Based on a sizeable inventory of new and re-sale units available on the market, the master developer is projecting "flat" sales price appreciation for the 2007 new-home affordable market, with 2-4 closings per community per month. Based on this absorption rate and the lack of a waiting list, it would take approximately 46 months - almost four years - to sell and close escrow on the 92 low-income units at The Landings. Finding Qualified Home Buyers The absorption rates experienced by the master developer for Village Eleven and the developer of the Mar Brisa development in San Miguel Ranch are symptomatic of a larger issue: a limited number of qualified buyers. Among the issues that limit the number of qualified buyers are debt/income ratios, downpayment costs, and total housing payment. Today's society is reliant on the use of debt. Experience from past affordable housing developments has demonstrated that many applicants simply have too much debt (i.e. student loan debt, car loans, revolving credit) to qualify for loans and/or meet City debt/income ratio requirements, regardless of subsidy levels. In addition to meeting the debt to income ratios used for loan qualification, applicants must have sufficient discretionary cash for a downpayment, closing costs, and reserves. Unlike rental housing, homeownership costs include the monthly mortgage and additionally costs for Home Owner Association fees and property taxes (the "Total Housing Payment"). Potential low-income buyers can barely qualify for a decent I Homes for All San Diegans, The State of Housing Affordability in the Region, 2006 2 U.S. Department of Housing and Urban Development, March 8, 2006 5-5 March 20, 2007, Item~ Page 6 of8 mortgage amount after Home Owner Association fees and property taxes are factored in. A recent affordable homeownership project (Mar Brisa) experienced difficulty finding applicants who could qualify for a $160,000 mortgage. Financinl?: a Rental Development Financing and development of The Landings, as a rental community, is proposed as a joint private-public partnership. CIC will be using Tax Exempt Multi-Family Revenue Bonds, Low Income Housing Tax Credit financing, and the State Multifamily Housing Program (MHP) to support the majority of the estimated $33.8 million ($367,300 per unit) cost of constructing the project (Attachment 2). Due to the financing programs CIC will be pursuing, the project will provide rents even lower than the 80% of the Area Median Income (AMI) required by the City's Affordable Housing Program. Units will be made affordable to families at 30% to 60% of the AMI and income and rent restrictions will be maintained for a period of 55 years (Attachment 3). The income and rent restrictions will be incorporated into the various deed restrictions for The Landings. Compliance with these restrictions will be subject annually to regulatory audit and annual tax credit certification. Compliance with strict property management policies and procedures will ensure that income and rent restrictions will be maintained for the full 55-year compliance period, and will bind all subsequent owners of The Landings, so that the commitment remains in force regardless of ownership. With rents restricted at these levels and for this time period, the net operating income is insufficient to support a loan large enough to cover the project costs. Therefore, there remains a financing gap of approximately $12 million. It is proposed that the remaining financing gap will be met by a combination of master developer land donation, deferred developer fee and City assistance. To close the financing gap, CIC has requested direct financial assistance of $920,000. The City's funds would be used to restrict 11 of the units for extremely low-income households at 30% of the AMI. This equates to a per unit subsidy of $83,636. As specified in the City's Housing Element, the Regional Housing Needs Assessment estimates a total need of 3,875 new housing units for extremely low and very low-income households. By using City funds to assist this income category, the City is able to make progress towards its own Housing Element goals, as well as the Region's. Staff is recommending that the City conditionally approve financial assistance III an amount not to exceed $920,000 from its HOME funds to assist the project. The leveraging of local dollars is necessary to obtain the critical bond/tax credit and MHP 5-6 March 20, 2007, Item~ Page 70f8 fmancing for the project. As proposed, the project would be able to leverage $36 in private investment for each $1 of our local resources. Financial assistance for the residential units will be subject to negotiation of satisfactory terms of the Regulatory Agreement and Loan Agreement and the approval of such terms and documents by the City at a later date. Form of Assistance - HOME Funds City assistance will be provided from funding received from the federal HOME Investment Partnership Program (HOME). Assistance will be in the form of a loan secured by a note and deed of trust recorded against the property. The principal and interest on the loan will be amortized over fifty- five years and repaid from cash surplus in annual installments. Terms of the loan will be further negotiated and all related loan documents will be presented to the City for approval at a later date. The City is required to use its HOME funds solely for the purpose of providing affordable housing for low-income persons. Federal requirements outline timeframes in which HOME dollars must be allocated and actually expended. By July 2007, the City must commit $927,860 to eligible activities. With no current plans for the expenditure of HOME funds and looming expenditure deadlines, the funding of this project will assist the City in meeting the allocation and expenditure requirements. Conditions of Fundinl! It is recommended that funding approved for The Landings be conditioned on approval of all other funding necessary to fund the project and execution of all necessary loan documents. CONCLUSION staff has analyzed the issues of an affordable for-sale development and rental housing and the specific issues related to the Otay Ranch community. As stated within the City's Housing Element, the more pressing need for the City's lower income population is for quality affordable rental housing, and a more balanced and varied housing stock is recommended for eastern Chula Vista. The proposal of 92 affordable rental units for low-income households in the Winding Walk community of Otay Ranch meets both of these goals, and provides a variety of benefits such as a preferred location to neighborhood services, amenities and employment centers, private funding opportunities, long term affordability, and a balance and variety of housing. At the request of the master developer, and following staff's review and analysis, staff recommends changing the project from for-sale affordable housing to a rental community. Based on the foregoing, staff furthermore recommends approval of the City resolution conditionally approving financial assistance, subject to future appropriation, in an amount 5-7 March 20,2007, Item-5- Page 8 of8 not-to-exceed $920,000 from the City's HOME funds for the development and construction of 92-units for lower income households, particularly II-HOME assisted units for extremely low-income households, within The Landings at Winding Walk. DECISION MAKER CONFLICT staff has reviewed the property holdings of the City Council and has found no property holdings within 500 feet of the boundaries of the property which is the subject of this action. FISCAL IMP ACT Approval of this resolution indicates an intention by the City to provide financial assistance for the development and construction of The Landings to provide affordable rental housing opportunities within the Winding Walk Otay Ranch community, once all other necessary financing for the project is secured. The loan amount of $920,000 will be appropriated at the time of execution of the City Loan Agreement from the unappropriated balance in the HOME Program. Funds for staff services are budgeted in the staff services portion of the Housing Division budget. ATTACHMENTS 1. Locator Map 2. Summary of Project Sources & Uses 3. Proposed Income & Rent Levels Prepared by: Leilani Hines. 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The Landings at Wmding Walk Attachment 2 PROFORMA SUBSIDY ANALYSIS Cost Funds Financing Gap Project Cost Land Purchase (Land Value & $10,000 Fee) Construction Contingency Permits & Fees Interest/Fees, Financing Costs DesignJEngineering Developer Fees Reserves, Legal, Other Sources of Funds $10,590,000 $14,269,634 $625,861 $2,684,928 $1,668,887 $755,000 $2,500,000 $695,939 Tax Credit Equity State MHP Loan Bond Subtotal $ 33,790,249 $ Subsidies City Loan Land Donation Deferred Developer Fee TOTAL Cost per Unit @ 92 Units) City/Agency Subsidy per Unit @ II Units City/Agency Leverage $ 33,790,249 $ 5-10 $9,624,000 $7,216,260 $4,948,000 21,788,260 $ 12,001,989 $920,000 $10,580,000 $501,989 33,790,249 $ $ 367,285 $ 83,636 $ 36 to $1 of City Assistance Attachment 3 The Landings at Winding Walk PROPOSED INCOME & RENT lEVELS l nit Description No. of Target Income Croup InclusionaQ Proposed lInits 'X. of AMI Annuallncolllc Housin~ Rents (-I Persons) Obli~ation 3 Bd/2 Ba 32 30% $20,700 $1,035 $479 3 Bd/2 Ba 12 50% $34,500 $1,035 $838 3 Bd/2 Ba 22 55% $38,000 $1,035 $928 3 Bd/2 Ba 25 60% $41,400 $1,035 $1,018 MGR 1 N/A N/A N/A N/A Total Restricted 92 5-11 COUNCIL RESOLUTION NO. 2007-_ RESOLUTION OF THE CITY COUNCIL OF THE CITY OF CHULA VISTA CONDITIONALLY APPROVING FINANCIAL ASSISTANCE, SUBJECT TO FUTURE APPROPRIATION FROM THE HOME INVESTMENT PARTNERSHIP PROGRAM IN AN AMOUNT NOT-TO- EXCEED $920,000 TO CHELSEA INVESTMENT CORPORATION FOR THE DEVELOPMENT OF THE PROPOSED 92-UNIT AFFORDABLE RENTAL COMMUNITY, KNOWN AS THE LANDINGS AT WINDING WALK WHEREAS, the City of Chula Vista is an entitlement/participating jurisdiction for the U.S. Department of Housing and Urban Development (HUD) funding programs and is awarded on an annual basis a formula grant from the HOME Investment Partnership Program (HOME); and WHEREAS, HOME funds are designed exclusively to create affordable housing opportunities for low-income households through the construction, purchase, and/or rehabilitation of affordable housing for rent or homeownership or provide direct rental assistance to low-income people; and WHEREAS, Chelsea Investment Corporation ("Developer") proposes to construct a 92 unit multifamily rental development, with 25 units affordable to low-income households at 60 percent of the Area Median Income (AMI), 22 units for low-income households at 55 percent of the AMI, 12 units for very low-income at 50 percent of the AMI, and 32 units affordable to extremely low-income households at 30 percent of the AM I, within the Otay Ranch Village Eleven (also known as "Winding Walk") master planned community on a vacant 14 acre (gross) site known as Neighborhood R19 located on the corner of Discovery Falls Road and Crossroads Street in the City of Chula Vista ("Project"); and WHEREAS, Developer is applying for an allocation of Multifamily Housing Revenue Bonds from the California Debt Limit Allocation Committee (CDLAC), four percent (4%) tax credits from the Tax Credit Allocation Committee (TCAC), and Multifamily Housing Program from the State of California Housing and Community Development Department; and WHEREAS, subsidies were obtained in the form of a land donation from the master developer, Brookfield Shear Otay, LLC, and the Developer is proposing to defer a portion of their development fee to assist in the financing of the Project; and WHEREAS, the City's evaluation of the development budget, 45-year operating pro forma, sources and uses for the Project has determined that additional financing is appropriate and necessary in order to make the Project feasible; and WHEREAS, the City wishes to provide Developer with a development loan of nine hundred twenty thousand dollars ($920,000) from its HOME funds to assist with the financing gap for the construction of the Project, more particularly for eleven floating "HOME-assisted" units for extremely low-income households; and WHEREAS, the City's development loan does not exceed the HOME maximum per-unit subsidy limits based on the Section 221 (d)(3) limits established by HUD; and WHEREAS, the City's provision of funds to the Project will directly improve the City's supply of extremely low, very low and low-income housing within the area of the City east of interstate-805; and WHEREAS, the City has adopted a Housing Element of the General Plan which sets forth the objective of providing balanced and varied housing opportunities throughout the City to satisfy the needs 5-12 Resolution No. 2007-_ Page 2 and desires of various age, income and ethnic groups of the community, and which specifically provides for the construction of new affordable rental housing units through City assistance; and WHEREAS, the Project furthers the goals of the City set forth in the Housing Element and the Consolidated Plan as it will facilitate the creation of affordable housing which will serve the residents of the neighborhood and the City; and WHEREAS, the City's Housing Advisory Commission did, on the 28th day of February, 2007, hold a public meeting to consider said request for financial assistance; and WHEREAS, the Housing Advisory Commission, upon hearing and considering all testimony, if any, of all persons desiring to be heard, and considering all factors relating to the request for financial assistance, has recommended to the City that financial assistance be approved on the condition that all other necessary financing be secured for the Project; and WHEREAS, the Housing Advisory Commission found that the City's financial participation in the development of the Project will be a sound investment based upon Developer's ability to effectively serve the City's housing needs and priorities as expressed in the Housing Element and the Consolidated Plan and the cost effectiveness of the City's financial assistance based upon the leveraging of such resources; and WHEREAS, in accordance with the requirements of NEPA, the proposed project will be reviewed prior to the appropriation of funds from the HOME Program; and WHEREAS, the development of the Project implements the affordable housing requirements for Otay Ranch Village Eleven, impacts were previously analyzed in the certified EIR for the Otay Ranch Village Eleven GDP and SPA Plan (Final Second Tier EIR-01-02), and the Project is in compliance with the previously certified EIR, therefore, no further action is required under CEQA. NOW, THEREFORE, BE IT RESOLVED the City Council of the City of Chula Vista does hereby conditionally approve financial assistance subject to future appropriation in an amount not-to-exceed $920,000 from the City's HOME funds to Developer for the construction ofthe Project subject to the City's approval of an affordable housing regulatory and loan agreement and, at a minimum, the following terms and conditions: 1. Certification of the appropriate NEPA documentation prior to appropriation of any HOME funds for the Project. 2. Developer shall secure all other financing necessary for the acquisition and development of the Project. 3. Developer shall enter into a regulatory and loan agreement with the City to be considered at a later date by the City Council The approval of this agreement remains subject to final approval by the City Council which retains its sole and unfettered discretion as to that decision. 4. The loan repayment will be secured by a Deed of Trust and Promissory note for the property on behalf of the City of Chula Vista and recorded against the Project property. 5. The term of the loan shall be fifty-five (55) years. 5-13 Council Resolution No. 2007- Page 3 6. Developer will be required to operate the Project consistent with the Regulatory Agreement required by the Project's tax credit financing, bond financing, the City's Affordable Housing Program, and the City's HOME financing, the covenants imposed by these Agreements, and any other project requirements. 7. The City assistance is based upon the assumptions presented within the sources and uses offunds, development budget, development proforma and other information filed with the Affordable Housing Review Application for the project as submitted and reviewed by the Community Development Department. The City assistance is a maximum level of participation. It is expected that any substantive revisions in such financing assumptions which would lead to an increase in other resources available, would therefore reduce the level of City assistance. 8. This conditional approval remains subject to final approval by the City in its sole and unfettered discretion. pre'~"dl2 / ~ ~V Ann Hix Acting Director of Community Development Approved as to form by ~4:rM An oore City Attorney 5-14