HomeMy WebLinkAbout0003_4_PA 2021-18 - Exhibit C Draft 6th Cycle Housing Element2021-2029 HOUSING ELEMENT H - 1
section 6.0
h ousing element
2021 to 2029
lake elsinore general plan
City o f Lake Elsinore
Revised (3rd Revision) Draft
July 29, 2022
City of Lake Elsinore, California
2021 to 2029 Housing Element
Prepared by
MIG and the City of Lake Elsinore Planning Division
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Table of Contents
Page
1. INTRODUCTION 1.1
Overview 1.1
2021-2029 Housing Element Purpose & Organization 1.2
Relationship to Other General Plan Elements 1.4
Public Participation 1.4
Affirmatively Furthering Fair Housing 1.12
2. COMMUNITY PROFILE AND HOUSING NEEDS ASSESSMENT 2.1
Population and Employment Trends 2.1
Household Characteristics 2.5
Income 2.6
Housing Overpayment 2.7
Housing Stock Characteristics 2.7
Special Housing Needs 2.11
At-Risk Housing Analysis 2.18
Projected Housing Need (RHNA) 2.19
3. HOUSING CONSTRAINTS ANALYSIS 3.1
Non-governmental Constraints 3.1
Governmental Constraints 3.6
Affirmatively Furthering Fair Housing 3.33
4. HOUSING RESOURCES AND SITES INVENTORY 4.1
Housing in Lake Elsinore 4.1
Regional Housing Needs Allocation (RHNA) 4.2
Progress towards the RHNA 4.3
Residential Sites Inventory 4.4
Financial and Administrative Resources 4.27
5. REVIEW OF 2014-2021 PROGRAM ACCOMPLISHMENTS 5.1
6. HOUSING PLAN 6.1
Housing Goals, Policies, and Programs 6.2
Summary of Quantified Objectives 6.33
APPENDICES
Under Separate
Cover
Tables and Figures Page
Table 1.1: Public Outreach Activities 1.5
Table 2.1: Population Growth and Projected Growth 2.2
Table 2.2: Age 2.3
Table 2.3: Race and Ethnicity 2.3
Table 2.4: Employment by Industry 2.4
Table 2.5: Major Employers, 2018 2.5
Table 2.6: Household Characteristics by Tenure 2.5
Figure 2.1: Median Household Income by Tenure, 2019 2.6
Table 2.7: Housing Stock Characteristics 2.8
Table 2.8: Housing Characteristics by Tenure 2.9
Figure 2.2: Overcrowding 2010-2019 2.9
Table 2.9: Home Sales Prices 2.10
Table 2.10: Rents in Lake Elsinore and Riverside County 2.11
Table 2.11: Special Needs Groups 2.11
Table 2.12: Disability 2.12
Table 2.13: Elderly Residents/Households 2.13
Table 2.14: Large Households 2.14
Table 2.15: Female Headed Households 2.15
Table 2.16: Affordable Housing Developments 2.19
Table 2.17: Regional Housing Needs Allocation 2021-2029 2.20
Table 3.1: Disposition of Conventional Home Purchase Loan Applications in Riverside-San
Bernardino-Ontario MSA 3.4
Table 3.2: Disposition of Government-Assisted Home Purchase Loan Applications for the
Riverside-San Bernardino-Ontario MSA 3.5
Table 3.3: Residential Land Use Designations 3.8
Table 3.4: Residential Development Standards 3.9
Table 3.5: Permitted Uses in Residential Zones 3.10
Table 3.6: Parking Requirements 3.18
Table 3.7: Development and Planning Fees 3.23
Table 3.8: Building Permit Fees 3.24
Table 3.9: Impact Fees 3.25
Table 3.10: Development Review Timeframes 3.27
Table 3.11: Fair Housing Inquiries (2016-2021) 3.35
Table 3.12: 2020 Riverside County Point in Time Count of Unsheltered Adults 3.56
Figure 3.1: Racial Demographics 3.40
Figure 3.2: Population with a Disability 3.41
Figure 3.3: Percent of Children in Married-Couple Households 3.42
Figure 3.4: Percent of Children in Female-Headed Households 3.43
Figure 3.5: Median Household Income 3.44
Figure 3.6: Population with Incomes Below Poverty Level 3.45
Figure 3.7: Racially or Ethnically Concentrated Areas of Poverty (R/ECAPs) 3.53
Figure 3.8: TCAC Opportunity Areas 3.54
Table 3.12: 2020 Riverside County Point in Time Count of Unsheltered Adults 3.56
Figure 3.9: Overpayment by Homeowners 3.58
Figure 3.10: Overpayment by Renters 3.59
Tables and Figures Page
Figure 3.11: Overcrowded Households 3.60
Figure 3.12: CalEnviroScreen 3.0 and Disadvantaged Communities 3.61
Figure 3.13: Renter-Occupied Housing Units 3.65
Figure 3.14: Median Rents 3.66
Figure 3.15: Sites Inventory and TCAC Opportunity Areas 3.71
Table 4.1: RHNA Allocation 2021-2029 4.3
Table 4.2: Approved Projects Affordability Distribution 4.4
Table 4.3: Affordable Housing Developments 4.8
Table 4.4: Specific Plan Affordability Assumptions 4.9
Table 4.5: Affordable Housing Costs by Household Size and Tenure - 2020 4.10
Table 4.6: Residential Capacity within Specific Plans 4.12
Table 4.7: Vacant Land Inventory 4.25
Table 4.8: Sites Inventory Summary 4.29
Figure 4.1: Sites Inventory Map 4.31
Figure 4.2: Sites Inventory Map – HDR and RMU Sites 4.32
Table 5.1: 2014-2021 Program Accomplishments 5.2
Table 5.2: Summary of 2014-2021 Quantified Objectives and Progress 5.11
Table 6.1: Summary of 2021-2029 Quantified Objectives 6.33
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2021-2029 HOUSING ELEMENT PAGE – 1.1
lake elsinore general plan
housing element
1. INTRODUCTION
Overview
The City of Lake Elsinore is working diligently to remove constraints to housing development
and proactively encouraging and facilitating development of both market-rate and affordable
housing. The City has a strong commitment to implementing a vision that embraces new
opportunities, supports housing development, and provides diverse housing options. Realizing
that new challenges to providing housing opportunities have emerged, in 2020 the City
initiated a General Plan update to examine and address constraints to residential development
opportunities. In addition, a strategic approach to the City’s future economic and physical
development was undertaken with “Dream Extreme 2040”, a comprehensive long-term vision
plan adopted in July 2020. The Dream Extreme 2040 Plan provides the framework to guide
decision making over the next twenty (20) years by identifying key Anchors, Aspirations, and
Strategies. The City will prioritize attracting residential development through strategies such
as acquiring and redeveloping tax-delinquent properties and encouraging the consolidation of
parcels, and by focusing on parcel assembly to create larger, development ready pads in/near
Downtown.
This Housing Element provides the City of Lake Elsinore with a coordinated and comprehensive strategy
for promoting the production of safe, decent, and affordable housing for all community residents. The
Housing Element is a mandatory General Plan element. It identifies ways in which the housing needs of
existing and future residents can be met. State law requires that all cities adopt a Housing Element and
describes in detail the necessary contents of the Housing Element. California planning law provides more
detailed requirements for the Housing Element than for any other General Plan element. This Housing
2021-2029 HOUSING ELEMENT PAGE – 1.2
Element responds to those requirements and responds specifically to conditions and policy directives
unique to Lake Elsinore.
The California Legislature has identified the attainment of a decent home and suitable living environment
for every Californian as the State’s main housing goal. Recognizing the important part that local planning
programs play in pursuit of this goal, the Legislature has mandated that all cities and counties prepare a
Housing Element as part of their comprehensive General Plans. Rules regarding Housing Elements are
found in the California Government Code Sections 65580-65589. Unlike the other mandatory general plan
elements, the housing element is required to be updated regularly. It is also subject to detailed statutory
requirements and mandatory review and approval by a State agency — HCD (Department of Housing and
Community Development). The revision process must include community input.
Section 65581 of the California Government Code reflects the legislative intent for mandating that each
city and county prepare a Housing Element:
1. To ensure that counties and cities recognize their responsibilities in contributing to the attainment
of the State housing goal.
2. To ensure that counties and cities will prepare and implement housing elements which, along
with federal and state programs, will move toward attainment of the state housing goals.
3. To recognize that each locality is best capable of determining what efforts are required by it to
contribute to the attainment of the state housing goal, provided such a determination is
compatible with the state housing goal and regional housing needs.
4. To ensure that each local government cooperates with other local governments to address
regional housing needs.
2021-2029 Housing Element Purpose & Organization
The Housing Element covers the planning period of October 15, 2021 through October 15, 2029 and
identifies strategies and programs to: 1) encourage the development of a variety of housing opportunities;
2) provide housing opportunities for persons of lower and moderate incomes; 3) preserve the quality of
the existing housing stock in Lake Elsinore; 4) minimize governmental constraints; and 5) promote equal
housing opportunities for all residents.
Toward these ends, the Housing Element consists of:
• An introduction of the scope and purpose of the Housing Element, including a description of the
public input process.
• An analysis of the City’s demographic and housing characteristics and trends including:
o An analysis of population and employment trends.
o An analysis of household characteristics including level of payment compared to ability to
pay, housing characteristics, including overcrowding, and housing stock condition.
2021-2029 HOUSING ELEMENT PAGE – 1.3
o An analysis of any special housing needs, such as those of older adults; persons with
disabilities, including a developmental disability; large families; farmworkers; families
with female heads of households; and families and persons in need of emergency shelter.
o An analysis of existing assisted housing developments that are eligible to change from
low-income housing uses during the next 10 years due to termination of subsidy
contracts, mortgage prepayment, or expiration of restrictions on use.
• A review of potential market, governmental, and environmental constraints to meeting the City’s
identified housing needs including land use controls, building codes and their enforcement, site
improvements, fees and other exactions required of developers, local processing, and permit
procedures, and any locally adopted ordinances that directly impact the cost and supply of
residential development. The analysis must also demonstrate local efforts to remove
governmental constraints that hinder the City from meeting its share of the regional housing need
and from meeting the need for housing for persons with disabilities, supportive housing,
transitional housing, and emergency shelters identified pursuant to paragraph. The analysis must
also address nongovernmental constraints upon the maintenance, improvement, or development
of housing for all income levels, including the availability of financing, the price of land, the cost
of construction, and local efforts to remove nongovernmental constraints that create a gap
between the locality’s planning for the development of housing for all income levels and the
construction of that housing. All housing elements due on or after January 1, 2021 must include
an assessment of fair housing practices, an analysis of the relationship between available sites
and areas of high or low resources, and concrete actions in the form of programs to affirmatively
further fair housing.
• An evaluation of land, administrative, and financial resources available to address the housing
goals. The evaluation includes an inventory of land suitable and available for residential
development, including vacant sites and sites having realistic and demonstrated potential for
redevelopment during the planning period to meet the locality’s housing need for a designated
income level, and an analysis of the relationship of zoning and public facilities and services to
these sites.
• A review of past accomplishments under the previous Housing Element including effectiveness of
the Element, progress in program implementation, continued appropriateness of the housing
programs, and how past programs were effective in addressing the housing needs of the special
populations.
• A Housing Plan to address the identified housing needs, including housing goals, policies, and
programs. To make adequate provision for the housing needs of people all income levels, the City
must, at a minimum, identify programs that do all the following:
o Identify adequate sites, with appropriate zoning and development standards and services
to accommodate the City’s share of the regional housing needs for each income level.
o Assist in the development of adequate housing to meet the needs of extremely low-, very
low-, low-, and moderate-income households.
o Address and, where possible, remove governmental constraints to the maintenance,
improvement, and development of housing, including housing for people at all income
levels, as well as housing for people with disabilities.
o Conserve and improve the condition of the existing affordable-housing stock.
2021-2029 HOUSING ELEMENT PAGE – 1.4
o Preserve assisted housing developments at-risk of conversion to market-rate.
o Promote equal housing opportunities for all people, regardless of race, religion, sex,
marital status, ancestry, national origin, color, familial status, or disability.
The Housing Element is also closely related to the City’s Zoning regulations and assesses multiple
ordinances and Zoning Regulations sections that pertain to housing for compliance with State law. As new
ordinances are considered, the City will review the Housing Element to ensure compliance with housing
policies.
Relationship to Other General Plan Elements
State law requires that the General Plan and all individual elements collectively form an "integrated,
internally consistent, and compatible statement of policies." The goals, policies, and programs of this
Housing Element are consistent with the goals, policies, and programs contained in other elements of the
Lake Elsinore General Plan. When any element of the General Plan is amended, the City will review the
Housing Element and if necessary, prepare an amendment to ensure continued consistency among
elements. Several new laws require additional General Plan update requirements upon revision of the
Housing Element. The City is concurrently undertaking a focused General Plan update to address safety
and environmental justice policies. As such, information on flood hazard, flood management, fire hazards,
evacuation routes, wildfire hazard and risk reduction, and climate adaptation will be up to date. Consistent
with State law, the City will initiate a review of the entire General Plan, especially land-use provisions after
any subsequent amendment to the Housing Element or other General Plan elements to ensure internal
consistency is maintained.
Public Participation
The Housing Element must reflect the values and preferences of the Lake Elsinore community; therefore,
public participation plays a role in the development of this Element. Section 65583(c)(6)(B) of the
Government Code states: “The local government shall make diligent effort to achieve public participation
of all economic segments of the community in the development of the housing element, and the program
shall describe this effort.” This process not only includes residents of the community, but also coordinates
participation among local agencies and housing groups, community organizations, and housing sponsors.
From May 2021 to adoption of the 2021-2029 Housing Element, the City of Lake Elsinore proactively
engaged the community through a variety of avenues including digital/social media outreach, a
community survey, a community workshop, and direct email to stakeholder groups. Table 1.1 provides a
summary of the City’s outreach activities followed by a detailed summary of the community survey and
workshop. Outreach activities were intended to reach a broad audience, promoting language access
and consulting with relevant organizations. The Housing Plan (Chapter 6) reflects the values and
preferences of the Lake Elsinore community. Through a series of public outreach efforts summarized
below, the City obtained input from residents of the community, local agencies and housing groups, and
community organizations. Several themes emerged that the City has addressed in this Housing Element.
2021-2029 HOUSING ELEMENT PAGE – 1.5
When asked to indicate the importance of potential housing-related actions or programs in the City’s
Housing Element survey, the following priorities emerged:
• Establishing/supporting programs to help first-time homebuyers;
• Programs to help homeowners at risk of mortgage default; and
• Encouraging the rehabilitation of existing housing in older neighborhoods.
Comments from the community workshop and public review of the Draft Housing Element include:
• Addressing the impact on services and infrastructure from future residential development
(schools, roads, infrastructure);
• Development of Accessory Dwelling Units (ADUs) to address housing need including
overcrowding;
• The need for senior housing, affordable housing; and
• More strategies to encourage development in Downtown.
The comments have been folded into the Housing Plan (Chapter 6) through programs that facilitate
development of new housing, including housing for lower-income residents and residents with special
needs, and programs to help existing residents with housing rehabilitation and rental assistance and
future residents by supporting regional homeownership programs.
Table 1.1: Public Outreach Activities
Date Outreach Effort/Event
May 12, 2021 City of Lake Elsinore Housing Element project and community survey was introduced at the
Lake Elsinore Valley Chamber of Commerce Hump Day Morning Mixer.
May 11, 2021 A dedicated webpage for the Housing Element
updated entitled “Let’s Talk Housing, Lake
Elsinore” was added to the City’s website at
www.lake-elsinore.org/housing. The webpage
includes an overview of the Housing Element, the
2021-2029 Housing Element update process,
State-mandated goals for the Housing Element,
public participation opportunities, and a list of
Frequently Asked Questions (FAQ). The website
included a Spanish translation option.
Additionally, advertisements for the City’s
Community Survey and workshop were included
as was a summary and recording of the June 17,
2021 Community Workshop. A comprehensive
summary of survey results was also made
available on the website. Six (6) webpage visitors
signed up for E-Notifications to receive future
information regarding the Housing Element update.
2021-2029 HOUSING ELEMENT PAGE – 1.6
Table 1.1: Public Outreach Activities
Date Outreach Effort/Event
May 12, 2021 – June
20, 2021
The City of Lake Elsinore Housing Element Survey ran from May 12 through the end of the day
June 20, 2021 and solicited public input regarding housing issues facing Lake Elsinore and its
residents. In total, 340 participants submitted surveys – 227 responded to all 21 questions,
and 113 responded to one or more questions but not all 21. The survey was available in
English and Spanish.
May 12, 2021 –
Ongoing
The City published weekly Social Media posts on the City Facebook & Instagram pages in both
English and Spanish. Posts were published over eight days and garnered a total of 35,784
views. Social media posts summary:
• June 17: 3,255 Reached
• June 15: 3,645 Reached
• June 10: 4,695 Reached
• June 4: 3,934 Reached
• May 27: 4,657 Reached
• May 19: 6,934 Reached
• May 12: 8,664 Reached
May 12, 2021 –
Ongoing
In addition to dedicated posts, the City also published Social Media Story Posts on Facebook &
Instagram in English and Spanish. While dedicated social media posts can remain on asocial
media platform indefinitely, story posts are collection of images and short videos that
disappears after 24 hours. The City’s 44 posts are estimated to have reached 71,752 accounts
and included interactions with 349 users (through responses or comments). The City uses
story posts to ask questions related to housing needs. A summary of these responses is
included in the following section of this Chapter.
May 25, 2021 At a meeting of the Lake Elsinore City Council, Councilmember Steve Manos encouraged
community members to participate in the Housing Element Update process by attending the
Housing Element workshop and by taking the Housing Element survey.
May 25, 2021 – June
6, 2021
The City displayed advertisements for the Housing Element Workshop on a digital billboard
located at the Outlets at Lake Elsinore commercial center located along I-15.
May 25, 2021 – June
20, 2021
The City displayed advertisements for the Housing Element Workshop on digital billboards
located near the Lake Elsinore Storm Baseball Stadium and the Lake Elsinore Casino both of
which are located along I-15.
June 8, 2021 An event was posted on the City’s Facebook page advertising the Housing Element Workshop
and included comments about the upcoming event by Lake Elsinore City Councilmember Steve
Manos. At the meeting of the Lake Elsinore City Council, the public was reminded to
participate in in the Housing Element Update process by attending the Housing Element
workshop and by taking the Housing Element survey.
June 9, 2021 A presentation about the City’s update of the Housing Element was presented at the Lake
Elsinore Valley Chamber of Commerce’s Hump Day Morning Mixer.
June 10, 2021 Invitations to the Housing Element workshop “Let’s Talk Housing, Lake Elsinore” were
distributed via email to stakeholders, including housing developers, Homeowner Associations,
community groups including those working with special needs residents and the Lake Elsinore
Valley Chamber of Commerce. The Lake Elsinore Valley Chamber of Commerce also
distributed flyers twice to its members.
June 10, 2021 The City included the upcoming workshop “Let’s Talk Housing, Lake Elsinore” in a weekly email
update to City Employees, Public Safety Advisory Commission (PSAC), and members of the
Lake Elsinore City Council and Planning Commission.
June 17, 2021 "The City conducted the “Let's Talk Housing" Community Workshop. The workshop was
offered in English and Spanish. Advanced registration was required and allowed participants to
2021-2029 HOUSING ELEMENT PAGE – 1.7
Table 1.1: Public Outreach Activities
Date Outreach Effort/Event
indicate of they needed Spanish language assistance at the workshop. No advanced
registrations for Spanish Speaking option were received.
July 1, 2021 Following the workshop, the City posted the presentation, video recording, and meeting
comment summary on the City’s website.
August 16, 2021 The City sent out notifications of the release of the Public Review Draft Housing Element
through social media pages, the City website, and emails to the stakeholder list and Chamber
of Commerce. The notification included a link to the Public Review Draft Housing Element and
information on how to submit comments to the City .
August 24, 2021 At a meeting of the Lake Elsinore City Council, Councilmember Steve Manos discussed the
ongoing Housing Element update in a segment during City Council comments entitled “Let’s
Talk Housing, Lake Elsinore” and encouraged community members to participate in the
Housing Element Update process by providing feedback on the draft Housing Element. The
segment included information concerning the deadline to submit comments and that the draft
Housing Element was available at www.lake-elsinore.org/housing.
September 14, 2021 At a meeting of the Lake Elsinore City Council, Councilmember Steve Manos discussed the
ongoing Housing Element update in a segment during City Council comments entitled “Let’s
Talk Housing, Lake Elsinore” and encouraged community members to participate in the
Housing Element Update process by providing feedback on the draft Housing Element. The
segment included information concerning the deadline to submit comments and that the draft
Housing Element was available at www.lake-elsinore.org/housing.
October 5, 2021 The City of Lake Elsinore Planning Commission held a public hearing regarding the draft
Housing Element and received written and public testimony regarding the draft Housing
Element.
November 15, 2021 The City sent out notifications of the release of the Revised Draft Housing Element (2021-
2029) which incorporate comments from the California Department of Housing and
Community Development (HCD) through social media pages, the City website, and emails to
the stakeholder list and Chamber of Commerce. The notification included a link to the Revised
Draft Housing Element and information on how to submit comments to the City. The City
published several Social Media posts on the City Facebook and Instagram pages. Posts were
published over eight days and garnered a total of 3,762 views.
April 5, 2022
The City sent out notifications of the release of the Second Revised Draft Housing Element
(2021-2029) which incorporate additional comments from the California Department of
Housing and Community Development (HCD) through social media pages, the City website,
and emails to 53 stakeholders and 93 contacts from the City’s Housing Element survey. The
City published several Social Media posts on the City Facebook and Instagram pages. Posts
were published over eight days and garnered a total of 3,380 views on each of the pages
(Facebook and Instagram). The City made the document available for seven days prior to
resubmittal to HCD.
August 5, 2022 The City posted on its website and sent out notifications of the release of the Third Revised
Draft Housing Element (2021-2029) which incorporate additional comments from the
California Department of Housing and Community Development (HCD). Notice was provided
through social media pages, the City website, and emails to 53 stakeholders and 93 contacts
from the City’s Housing Element survey. The City published several Social Media posts on the
City Facebook and Instagram pages. The City made the document available for seven days
prior to adoption hearings.
2021-2029 HOUSING ELEMENT PAGE – 1.8
Housing Element Survey
In May 2021, the City made available a Housing Element survey to gather input from the Lake Elsinore
community including residents, key local stakeholders, and housing advocates. The survey was available
May 12, 2021 through the end of the day June 20, 2021 in both English and Spanish. In total, 340
participants submitted surveys – 227 responded to all 21 questions, and 113 responded to one or more
questions but not all 21. The survey was available in English and Spanish. The City advertised survey
availability via their social media pages, City website, and at meetings of the Lake Elsinore City Council and
the Lake Elsinore Valley Chamber of Commerce. Social media data shows that over 35,784 members of
the City’s social media pages viewed the City’s bilingual advertisements for the survey.
Key Survey Findings
Among survey respondents, most (63.4 percent) are homeowners and over three-quarters of respondents
live in a detached single-family home. When asked about their satisfaction with their housing situations,
64.3 percent indicated they are satisfied with their current housing situation and 43.2 percent rated the
physical condition of the dwelling they live in as excellent. Respondents say they chose to live in Lake
Elsinore because of the cost of housing (63.9 percent), close distance to family and friends (26.4 percent),
and the quality of housing (22.5 percent). For those who do not currently own a home the primary issue
to finding a home is the ability to find a home in their target price range (33.9 percent). Over half of
respondents noted that focusing new housing near downtown, creating walkable neighborhoods was a
particularly important action for Lake Elsinore. Additional key findings include:
Housing Cost:
Over 44 percent of respondents indicated that the cost of housing in Lake
Elsinore prevents children from being able to stay/own homes when they
grow up. Close to 34 percent of respondents wishing to own a home in Lake
Elsinore indicated that they cannot find a home in their target price range
and 18 percent indicated that they do not currently have the financial
resources for an adequate monthly mortgage payment. When identifying the
types of housing needed in Lake Elsinore, the 4th most frequent response was
“affordable or workforce housing”. When asked to indicate the importance
of potential housing -related actions or programs, establishing/supporting
programs to help first-time homebuyers and programs to help homeowners
at risk of mortgage default were in the top three housing actions identified
as especially important.
Housing needs:
Respondents were asked to rank their top choices in order of importance, of
the types of housing needed in Lake Elsinore. The most frequent responses
are detached, single-family homes, condominiums/townhomes, and larger
lot, rural estate homes.
2021-2029 HOUSING ELEMENT PAGE – 1.9
Housing maintenance: While over 43.2 percent of respondents indicate that the physical condition
of their home was excellent , more than a third (34.8 percent) indicated that
their home shows signs of minor deferred maintenance (i.e., peeling paint,
chipped stucco, etc.) and 13.2 percent indicated that their home needs one
or more major upgrades (i.e., new plumbing, new electrical, new foundation,
etc.). When asked to indicate the importance of potential housing -related
actions or programs, encouraging the rehabilitation of existing housing in
older neighborhoods was the top housing action identified as especially
important.
Future housing-related
actions:
Respondents were asked to indicate the importance of potential housing -
related actions or programs. Encouraging the rehabilitation of existing
housing in older neighborhoods, establishing/supporting programs to help
first-time homebuyers, and programs to help homeowners at risk of
mortgage default were the top three housing actions identified as especially
important.
Future Housing: Respondents ranked their top choices in order of importance, with 1 being
the most important. The top response was that new housing should be
located where it will have the least impact on traffic in Lake Elsinore. When
the responses are weighted (4 points for a 1 response, 3 points for a 2
response, and so on…) the top answers were locations where new housing
will have the least impact on traffic and that new housing should be spread
evenly across all parts of the City.
A detailed summary of the survey results is included in Appendix A of this Housing Element.
Housing Element Workshop
On June 17, 2021, the City conducted a workshop prior
to submitting the draft Housing Element to the State
Department of Housing and Community Development
(HCD) to discuss the Draft Housing Element.
Because some Covid-19 pandemic public gathering
limitations were still in place, the meeting was made
available through teleconferencing. To ensure that the
housing concerns of low- and moderate-income and
special needs residents were addressed, the City notified
agencies and organizations that serve these communities
in Lake Elsinore and surrounding areas. Stakeholder
organizations servings families, youth, seniors, persons
experiencing homelessness, veterans, and persons with
disabilities are included in the stakeholder list. The list of agencies and organizations invited to the study
2021-2029 HOUSING ELEMENT PAGE – 1.10
session (and notified of the availability of the draft Housing Element for comment) are listed in Appendix
A. In addition to this list, 934 commercial business license holders were also sent workshop invitations.
Following the workshop, a summary of workshop comments was posted on the City’s website along with
the workshop video recording and presentations.
Key Workshop Findings
Twenty-three community members attended the workshop in addition to various City staff members.
Several themes emerged from the comments and questions received:
• Participants shared a concern about the impact on services and infrastructure from future
residential development (e.g., schools, roads, and infrastructure).
• Participants expressed interest in Accessory Dwelling Unit (ADU) development as a housing
opportunity that can help address housing needs such as overcrowding.
• Participants expressed the need for more senior housing.
• Participants expressed a desire for additional strategies to encourage development in Downtown.
• One participant asked the City to require or encourage the use of local skilled labor for new
housing development activity.
Workshop Comment Summary:
Public Review of Housing Element
Further opportunities for public participation were provided when the Draft Housing Element was made
available on the City’s website for review and comment. Local stakeholders such as housing developers,
service providers, neighboring jurisdictions, and housing advocates were invited to review and comment
on the 2021-2029 Housing Element Public Review Draft. The City sent out notifications of the release of
the Public Review Draft Housing Element through social media pages, the City website, and emails to the
stakeholder list and Chamber of Commerce. The notification included a link to the Public Review Draft
Housing Element and information on how to submit comments to the City. The initial review period was
from August 16 to September 13, 2021 with additional opportunities for public participation to be
provided at Planning Commission and City Council adoption hearings expected to occur in late 2021 and
early 2022. Comments received during the public hearings will be incorporated into the adopted Housing
Element. Comments on the initial Draft Housing Element included:
2021-2029 HOUSING ELEMENT PAGE – 1.11
• The lack of affordable housing and affordable housing options for residents on fixed incomes.
During the HCD (Department of Housing and Community Development) review process which spanned
from August 23 to October 22, 2021, the public was encouraged to continue to provide feedback on the
Element. In addition to information on the City website, at several meetings of the Lake Elsinore City
Council, Councilmembers discussed the ongoing Housing Element update and encouraged community
members to participate in the Housing Element Update process by providing feedback on the Draft
Housing Element.
On November 24, 2021, a revised draft of the Housing Element was resubmitted to HCD (Department of
Housing and Community Development) with revisions which addressed HCD’s findings letter from October
22, 2021. The findings letter identified findings related to the need for additional analysis in various parts
of the Element. The findings letter from October 22, 2021 and a table summarizing HCD findings and the
City’s responses/revisions to each comment is included in Appendix A.
For ten days prior to submittal, the Element
revisions were made available to the public
for comment and input. The stakeholder list
was emailed a notice of the availability of
the proposed revisions. During the second
HCD review period which ran from
November 15, 2021 to November 24, 2022,
the community was able to review and
comment on the Element. The review
period continued during the 2nd review
period for HCD (60 days from mid-
November 2021 to mid-January 2021). As of
November 24, 2021, no comments were
received.
On April 4, 2022, a second revised draft of
the Housing Element was made available to
the public for comment and input. The
revisions addressed HCD’s findings letter
from October 22, 2021. The City sent out
notifications of the release of the Second
Revised Draft Housing Element (2021-2029)
through social media pages, the City
dedicated Housing Element website, and
email notifications to 53 stakeholders and
93 contacts from the City’s Housing Element
survey. The City published several Social
2021-2029 HOUSING ELEMENT PAGE – 1.12
Media posts on the City Facebook and Instagram pages. Posts were published over eight days and
garnered a total of 3,380 views on each of the pages (Facebook and Instagram). The City made the
document available for seven days prior to resubmittal to HCD. The following comments were received
via the City’s social media pages:
• “The simple idea of more housing sounds insane. The roads are packed everyday. Let's bring more
manufacturing companies or other business to increase local employment.”
• “I don’t understand how California doesn't have enough electricity and water but they continue
to still build homes.”
• “Stop building houses! Our roads cannot handle the increase in traffic! Let infrastructure catch
up!”
• “I agree we need some sort of commitment to widening lake/grand to 3 lanes each direction. The
same with all of 74 with a spur from Nichols to 74 further East. The state is making incredible
revenue off the toll system and it’s time they take action on widening the 15 and putting a
connecting spur from 91xps to 241xps to end the constant collisions in gypsum cyn. Additionally
it might be worth exploring a tunnel from 15 to 241 under the Cleveland National Forest.”
• “How about giving incentive to people who want to build their own home and not to the big
developers who only in return create Mello Roos and Home Associates cost.”
• “What does it matter? When you let commercial warehousing corps buy land around housing?”
• “Vons. Walmart. Cocos. Sizzler.?”
• “Maybe another highway or expansion of the existing highways.”
• “Our community has grown exponentially. Definitely a University for our hard working students”
• “Yes, more schools and a community college and a university for our students.”
• “Along with the housing , have you taken into consideration ADDITIONAL school’s?????”
• “nope! That would take planning which Elsinore can’t seem to do.”
• “the "city" does not *directly* make decisions on new schools. May I suggest that you go to:
https://www.leusd.k12.ca.us/ There is a schedule for school board meetings there.”
Affirmatively Furthering Fair Housing (AFFH)
State law requires that the preparation, adoption, and implementation of a housing element includes a
diligent effort to include public participation from all economic segments of the community. A diligent
effort means going beyond simply giving the public an opportunity to provide input and should be
proactively and broadly conducted through a variety of methods to assure access and participation. As
part of the Housing Element update, the City of Lake Elsinore engaged the community through a variety
of avenues including digital/social media outreach, a community survey, community workshops, and
direct email to stakeholder groups. To ensure all residents regardless of language spoken were included,
meeting advertisements, flyers, and surveys were available in Spanish.
During the preparation of the housing element the City exercised a diligent effort to include public
participation from all economic segments of the community. Through direct contact via email and through
electronic means such as a dedicated webpage and social media sites, the City proactively and broadly
conducted through a variety of methods to assure access and participation. Outreach for the workshop
2021-2029 HOUSING ELEMENT PAGE – 1.13
was conducted in English and Spanish using flyers, social media posts, direct mail to a stakeholder list and
to an email list. Notification of the workshop were sent to residents, local businesses, stakeholders, and
the Lake Elsinore Valley Chamber of Commerce members. Information was posted on the General
Plan/Housing Element website. Social media posts related to the Housing Element outreach program
reached over 35,000 persons. To expand interest from the community, the City posted “stories” which
are collection of images and short videos that disappears after 24 hours. The City’s 44 posts are estimated
to have reached 71,752 accounts and included interactions with 349 users (through responses or
comments). The City used story posts to ask questions related to housing needs. The City also displayed
advertisements for the Housing Element Workshop on digital billboards located near the Lake Elsinore
Storm Baseball Stadium and the Lake Elsinore Casino both of which have very high visibility due to their
location along I-15.
The City’s “Let's Talk Housing" Community Workshop was offered in English and Spanish. Advanced
registration was required and allowed participants to indicate of they needed Spanish language assistance
at the workshop.
To ensure that the housing concerns of low- and moderate-income and special needs residents were
addressed, the City notified agencies and organizations that serve these communities in Lake Elsinore and
surrounding areas. Stakeholder organizations servings families, youth, seniors, persons experiencing
homelessness, veterans, and persons with disabilities are included in the stakeholder list. The list of
agencies and organizations invited to the study session (and notified of the availability of the draft Housing
Element for comment) are listed in Appendix A. In addition to this list, 934 commercial business license
holders were also sent workshop invitations. Making the outreach process and material accessible to
Spanish speakers was a priority. Outreach for the workshops and the survey was conducted in English and
Spanish.
To affirmatively further fair housing, State guidance indicates:
Outreach plans should consider geographic barriers to participation and should plan to hold in-person
meetings in various locations to ensure residents from across the jurisdiction can participate.
• The Draft Housing Element was drafted during 2020 and 2021 and Covid-19 pandemic public
gathering limitations were still in place. As a result, the outreach meetings were conducted
through teleconferencing.
Meetings should be held outside of work hours, including on evenings and weekends, to facilitate
participation.
• Both public workshops were conducted in the evening. The survey was available from May 12 to
June 20, 2021 which allowed for access during a variety of days and times.
Drafts of the housing element should be made available to the public for review and comment with ample
time before submission to the Department of Housing and Community Development (HCD) for review.
2021-2029 HOUSING ELEMENT PAGE – 1.14
• The City sent out notifications of the release of the Public Review Draft Housing Element through
social media pages, the City website, and emails to the stakeholder list and Chamber of
Commerce. The notification included a link to the Public Review Draft Housing Element and
information on how to submit comments to the City. The initial review period was from August
16 to September 13, 2021.
• The City sent out notifications of the release of the Revised Draft Housing Element (2021-2029)
which incorporate comments from the California Department of Housing and Community
Development (HCD) through social media pages, the City website, and emails to the stakeholder
list and Chamber of Commerce. For ten days prior to submittal of the revised element to HCD,
Housing Element revisions were made available to the public for comment and input.
• The notification included a link to the Revised Draft Housing Element and information on how to
submit comments to the City. The City published several Social Media posts on the City Facebook
and Instagram pages. Posts were published over eight days and garnered a total of 3,762 views.
The community was notified of the opportunity to comment on the Draft through posts on the
City’s dedicated Housing Element webpage and via social media.
• On April 4, 2022, a second revised draft of the Housing Element was made available to the public
for comment and input. The City sent out notifications of the release of the Second Revised Draft
Housing Element (2021-2029) which incorporate additional comments from the California
Department of Housing and Community Development (HCD) through social media pages, the City
website, and emails to 53 stakeholders and 93 contacts from the City’s Housing Element survey.
The City published several Social Media posts on the City Facebook and Instagram pages. Posts
were published over eight days and garnered a total of 3,380 views on each of the pages
(Facebook and Instagram). The City made the document available for seven days prior to
resubmittal to HCD.
In-person and electronic options for participation should also be made available.
• The Draft Housing Element was drafted during 2020 and 2021 and Covid-19 pandemic public
gathering limitations were still in place. As a result, the outreach meetings were conducted
through teleconferencing. Electronic options were provided to the community to provide input
on the Draft Housing Element and participation in the survey.
The City will continue to employ a wide variety of media and methods to notify the public of important
housing decisions and opportunities to provide input. Program 25 in the Housing Plan includes an action
item to ensure that low income and minority populations have equal access and influence in the land
use decision-making process through such methods as bilingual notices, posting bilingual notices at
development sites, and conducting public information meetings with interpreters. The City will promote
efforts to educate and involve traditionally underrepresented populations in the public decision-making
process by recruiting residents or distributing information on participation opportunities to residents in
areas of concentrated poverty to serve on boards, committees, task forces and other local government
decision-making bodies.
2021-2029 HOUSING ELEMENT PAGE – 2.1
lake elsinore general plan
housing element
2. COMMUNITY PROFILE AND HOUSING NEEDS
ASSESSMENT
To best understand the types of housing that will be needed to meet future demand, Housing Element
law (California Government Code Section 65583(a)(1) and 65583(a)(2)) requires that this Housing Element
assess population demographics and economic characteristics. Characteristics such as age, ethnicity, and
employment influence the type and cost of housing needed or in high demand. Tracking changes in the
demographics can also help City leaders better respond to or anticipate changing housing demand. The
identified demographic patterns and trends will serve as the basis for crafting the City’s housing policies
and programs.
This chapter uses data from various sources and with differing methodologies and timeframes. Totals may
vary between data sources but the intent of including the data is to show overall proportions, trends, and
change over time. In preparing the Community Profile and Housing Needs Assessment, various sources of
information are consulted. The 2010 Census and 2019 American Community Survey (ACS) provides the
basis for population and household characteristics. Several sources are used to provide reliable updates
to the 2010 Census, including the following:
• State of California Department of Finance E-5 Population and Housing Estimates (2011 to 2020);
• U.S. Department of Housing and Urban Development (HUD) Comprehensive Housing Affordability
Strategy (2012-2016);
• Southern California Association of Governments (SCAG) Demographics and Growth Forecast
2020; and
• CoreLogic California Home Sales Activity by City, August 2020.
Population and Employment Trends
Housing needs are influenced by population and employment trends. This section summarizes changes to
the population size, age, and racial/ethnic composition of Lake Elsinore.
PAGE – 2.2 LAKE ELSINORE GENERAL PLAN
Current Population and Population Growth
Between 2010 and 2020, as reported by the U.S. Census, the population of Lake Elsinore grew
approximately 24 percent, from 51,821 to 64,037 residents. Compared with the County of Riverside as a
whole, the 24 percent increase is three times that of the County. The Southern California Association of
Governments (SCAG) growth forecasts predict a steady increase in population through 2045. As shown in
Table 2.1, from 2020 to 2045, SCAG estimates that the City’s population will grow by 74 percent, while
countywide population is expected to increase by 36 percent. The SCAG population projections for 2045
are lower than the build out estimate for the 2011 General Plan. The City of Lake Elsinore 2011 General
Plan estimated that if land uses were built out fully according to the land use plan, the population within
the incorporated areas only was projected to be 209,756 by 2030.
Table 2.1: Population Growth and Projected Growth
2010 2020 2045
% Change
2010-2020
% Change
2020-2045
Lake Elsinore 51,821 64,037 111,600 24% 74%
Riverside County 2,203,332 2,383,286 3,252,000 8% 36%
Source: US Census Bureau 2010; CA Department of Finance, E-1 Population Estimates for Cities, Counties, and the State
with Annual Percent Change — January 1, 2019 and 2020; SCAG Demographics and Growth Forecast, 2020.
In addition to population projections, several other demographic characteristics and trends define
housing needs. Among these characteristics are age composition, racial and ethnic composition, and
employment.
Age
Population age distribution serves as an important indicator of housing needs because housing needs and
preferences change as individuals or households grow older. Young families tend to focus more on cost
and the ability to become first-time homebuyers. Table 2.2 shows the age distribution of Lake Elsinore
residents. In 2019, the 20-44 age group constituted the largest age group at approximately 37 percent,
followed by the 0-19 age group at 35 percent. Compared with 2010, the older age categories (45+ years)
increased while the 0-to-44-year age groups decreased slightly, and the median age increased. These
changes show that the City’s population is getting older, a trend seen nationwide. The City’s population,
however, is younger compared with the population in Riverside County. The median age in the City is 30.6
years while the median age in the County is 35.6. Overall, the large proportion of working adults and
school-age children and the small senior population means that demand will likely continue to grow for
larger units for families.
2021-2029 HOUSING ELEMENT PAGE – 2.3
Table 2.2: Age
Age 2010
Lake Elsinore
2019
Lake Elsinore Riverside County
0-19 years 18,152 (37%) 22,858 (35%) 28%
20-44 years 18,808 (39%) 24,249 (37%) 34%
45-64 years 9,459 (19%) 13,496 (21%) 24%
65+ years 2,225 (5%) 4,764 (7%) 14%
Median Age 28.3 30.6 35.6
Source: US Census Bureau 2010, 2019 ACS 5-year Estimates
Race and Ethnicity
Table 2.3 shows the racial/ethnic distribution of population in Lake Elsinore. White non-Hispanic and
Hispanic residents make up most of the population. Since 2010, the City has become more ethnically
diverse with an increase in the proportion of Hispanic and Black residents. Compared with the County of
Riverside, the City has a higher percentage of Hispanic residents and a lower percentage of white, non-
Hispanic residents. In Lake Elsinore, more than half (53 percent) of residents identify as Hispanic, while 49
percent of the County population does the same.
Table 2.3: Race and Ethnicity
Race/Ethnicity 2010
Lake Elsinore
2019
Lake Elsinore Riverside County
White (non-Hispanic) 19,604 (38%) 20,568 (31%) 35%
Hispanic 25,073 (48%) 34,716 (53%) 49%
Black 2,488 (5%) 3,921 (6%) 6%
American Indian and Alaska Native 190 (0.4%) 168 (0.3%) 0.4%
Asian/Pacific Islander 3,039 (6%) 4,040 (6%) 7%
Other 1,427(3%) 2,404 (4%) 3%
Source: US Census Bureau 2010, 2019 ACS 5-year Estimates
Employment
Residents who work within Lake Elsinore are primarily employed in educational services, health care and
social assistance, retail trade, and construction. This is consistent with the major employers in the City of
Lake Elsinore. Major employers include the Lake Elsinore Unified School District with 2,497 employees,
M & M Framing with 500 employees, Stater Bros. with 329 employees, and Lake Elsinore Hotel and Casino
with 275 employees. Half of the top ten employers in Lake Elsinore are in the retail sector.
Since 2010, there has been a drop in the proportion of residents employed in manufacturing and finance
and insurance and real estate. During that same time there was an increase in the proportion of residents
employed in educational services, and health care and social assistance and in construction.
Employment characteristics are important as they have a direct relationship with income. In 2019 the
median earnings for civilian employed Lake Elsinore residents (age 16 years and over) over in the labor
PAGE – 2.4 LAKE ELSINORE GENERAL PLAN
force was $34,933. Table 2.4 shows that jobs in industries that employ more than half of Lake Elsinore
residents (educational services/health care/social assistance, manufacturing, professional services, and
construction) pay higher than the median earnings while than those in the retail and arts industries, which
employ a quarter of residents, paid incomes lower than the City’s median earnings. Median earnings are
per person differ from median household income which is discussed in the next section.
According to the 2019 American Community Survey (ACS) 5-year estimates from the U.S Census Bureau,
there was an estimated 30,998 residents of Lake Elsinore with jobs. This number increased 30 percent
from 2010, when 23,896 residents reported having jobs. The increase in the number of residents with jobs
in the City from 2010 to 2019 (30 percent) is close to the population increase in the City from 2010 to
2020, which was 24 percent.
Table 2.4: Employment by Industry
Demographic Profile 2010 2019
Employment Median Earnings
Educational services, and health care and
social assistance 3,665 (17%) 5,748 (20%) $38,320
Retail trade 2,861 (14%) 3,920 (14%) $26,839
Manufacturing 2,649 (13%) 2,544 (9%) $50,893
Professional, scientific, and management,
and administrative and waste
management services 2,331 (11%) 3,096 (11%) $37,787
Construction 2,228 (11%) 3,534 (13%) $43,239
Arts, entertainment, and recreation, and
accommodation and food services 2,116 (10%) 3,084 (11%) $18,374
Finance and insurance, and real estate
and rental and leasing 1,291 (6%) 1,316 (5%) $47,308
Other services, except public
administration 1,141 (5%) 1,373(5%) $23,924
Transportation and warehousing, and
utilities 1,106 (5%) 1,450(5%) $46,250
Public Administration 718 (3%) 1,037 (4%) $60,903
Wholesale Trade 577 (3%) 525 (2%) $37,656
Information 395 (2%) 550 (2%) $52,396
Agriculture, forestry, fishing and hunting,
and mining 193 (1%) 86 (0.3%) $16,786
Source: US Census Bureau 2010, 2019 ACS 5-year Estimates
2021-2029 HOUSING ELEMENT PAGE – 2.5
Table 2.5: Major Employers, 2018
Employer Number of
Employees
Percent of
Employment
Lake Elsinore Unified School District 2,497 8.55%
M&M Framing 500 1.71%
Stater Bros. (3 locations) 329 1.135
Lake Elsinore Hotel and Casino 275 0.94%
Costco 265 0.91%
Walmart Store 234 0.80%
Riverside County – Dept. of Social
Services
164 0.56%
Elsinore Valley Municipal Water
District
154 0.53%
Target 140 0.48%
Home Depot 130 0.45%
Source: City of Lake Elsinore, 2019
Household Characteristics
Household characteristics are summarized in Table 2.6. The number of households in Lake Elsinore has
increased by 2,168 households (or 15 percent) since 2010. Owner-occupied households constituted 65
percent of all households in 2020, while households that are renter-occupied constituted 35 percent of
all households. This is a similar distribution to 2010, when 66 percent of households were owner-occupied,
and 34 percent of households were renter-occupied.
Table 2.6: Household Characteristics by Tenure
Household Characteristic Owner Households
Renter
Households All Households
Number of Households 11,971 (68%)
5,693 (32%) 17,664
Median Household Income $87,393 $39,921 $71,476
Household Income Categories - - -
Extremely Low Income (<= 30% AMI) 510 (5.1%) 1,115 (18.3%) 1,625 (10.1%)
Very Low Income (>30% to <= 50% AMI) 525 (5.3%) 835 (13.7%) 1,360 (8.5%)
Low Income (>50% to <= 80% AMI) 1,490 (15.0%) 1,425 (23.4%) 2,915 (18.2%)
Moderate Income (>80 to <=100% AMI) 1,065 (10.7%) 720 (11.8%) 1,785 (11.1%)
Above Moderate Income (>100% + AMI) 6,350 (63.9%) 2,005 (32.9%) 8,355 (52.1%)
Total number of projected Extremely Low-
Income Households (RHNA)
N/A N/A 939
Overpayment
All Households Overpaying for Housing 3,475 (34.9%) 3,315 (54.3%) 6,790 (42.3%)
Lower Income Households Overpaying for
Housing
1,660 (65.7%) 2,685 (79.6%) 4,345 (73.6%)
Source: US Census Bureau 2019 ACS 5-year Estimates, CHAS 2012-2016, Regional Housing Needs Allocation 2021-2029
PAGE – 2.6 LAKE ELSINORE GENERAL PLAN
Income
According to the 2019 ACS 5-year estimates from the U.S Census Bureau, the median household income
for Lake Elsinore was $71,476, or close to seven percent higher than the County of Riverside median
household income of $67,005. Median household income differs by tenure, or whether someone rents or
owns the home they live in. While renter-occupied median household income in 2019 was $39,921, the
owner-occupied median household income was more than twice that at $87,393.
Figure 2.1: Median Household (HH) Income by Tenure, 2019
Source: US Census Bureau 2019 ACS 5-year Estimates
Census data report that 16.4 percent of residents live in poverty, as defined by federal guidelines. This
proportion is higher than the County of Riverside as a whole, where 14.7 percent of residents live in
poverty. The proportion of persons or households living in poverty is much higher for Black or Hispanic
residents, of which 25.1 percent and 20.0 percent live in poverty, respectively. Additionally, 21.3 percent
of residents with a disability and 29.9 percent of female-headed households live in poverty.
For housing planning and funding purposes, the State Department of Housing and Community
Development (HCD) uses five income categories to evaluate housing need based on the Area Median
Income (AMI) for the County:
• Extremely Low-Income Households earn <= 30% of AMI.
• Very Low-Income Households earn >30% to <= 50% of AMI.
• Low-Income Households earn >50% to <= 80% of AMI.
• Moderate-Income Households earn >80 to <= 120% of AMI (federal data uses <= 100%).
• Above Moderate-Income Households earn >120% of AMI (federal data uses >100%).
$87,393 $39,921 $71,476 $81,679 $44,850 $67,005 $-
$20,000
$40,000
$60,000
$80,000
$100,000
Owner HH Renter HH All HH
Lake Elsinore Riverside County
2021-2029 HOUSING ELEMENT PAGE – 2.7
Comprehensive Housing Affordability
Strategy (CHAS) data provide special
Census tabulations (developed for
HUD) and report household income
adjusted for family size and tenure. As
shown in Table 2.3, in Lake Elsinore
above moderate-income households
represent the largest share of all
households, and low-income
households are the second largest
category. According to the 2016 CHAS, 10.1 percent total households in the City were classified as
extremely low income (<= 30% AMI), 8.5 percent were classified as very low income (>30% to <= 50%
AMI), and 18.2 percent were classified as low income (>50% to <= 80% AMI). Of all households, 63.2
percent had incomes above 80 percent of the median household income. Income differs by tenure. Table
2.3 shows that more renter households are in the lower income categories (<= 80% AMI) compared with
owner households.
Housing Overpayment
State and federal programs define whether a household experiences a housing cost burden as any
household spending more than 30 percent of its gross annual income on housing. Housing cost burdens
occur when housing costs increase faster than household income. When a household spends more than
30 percent of its income on housing costs, it has less disposable income for other necessities such as
health care or education. In the event of unexpected circumstances such as loss of employment or health
problems, lower-income households with a housing cost burden are more likely to become homeless or
double up with other households.
In Lake Elsinore, 42.3 percent of all households are overpaying for housing (HUD CHAS data, 2012-2016).
This is significantly higher for lower-income households, of which 73.6 percent are overpaying for housing.
Tenure is tied to overpayment. For owner-occupied households, 34.9 percent are overpaying for housing,
while 54.3 percent of renter-occupied households are overpaying for housing.
Housing Stock Characteristics
Housing Stock
Lake Elsinore was developed as a community of single-family dwelling units and has primarily remained
as such. Between 2010 and 2020, new development has mostly been single-family, with 2,559 single-
family units built compared to 128 multi-family units built. As part of the Mission Trail and The Cottages
at Mission Trail developments, 224 multi-family units were completed in 2021. Single-family structures
now make up 81 percent of the City’s housing stock, with multi-family comprising 15 percent and mobile
homes and other housing filling out the remaining 4 percent.
TENURE IS TIED TO OVERPAYMENT. FOR
OWNER-OCCUPIED HOUSEHOLDS, 34.9 %
ARE OVERPAYING FOR HOUSING, WHILE
54.3% OF RENTER-OCCUPIED HOUSEHOLDS
ARE OVERPAYING FOR HOUSING.
PAGE – 2.8 LAKE ELSINORE GENERAL PLAN
In 2020, there were 18,946 housing units in Lake Elsinore. Since 2010, the housing stock has increased by
2,693 units. Most of the housing stock comprises single-family homes (77 percent), with only 15 percent
being multi-family. Multi-family housing is defined as a building that houses more than one family at a
time. Apartments, condos, townhouses, duplexes, and quadruplexes are all examples of multifamily
housing options. The building can be owned by one person who rents out the units, or each unit can be
owned individually. Single-family homes also represent most of the housing stock increase from 2010,
with 95 percent of new units being single-family.
Table 2.7: Housing Stock Characteristics
Housing Characteristic All Households
Single-Family Detached Units 14,585 (77%)
Single-Family Attached Units 812 (4%)
Multi-Family Units 2,816 (15%)
Mobile home, other units 733 (4%)
Total units 18,946 (100%)
Average Household Size 3.58 persons per household
Units Needing
Replacement/Rehabilitation
<10 units
Source: 2020 CA DOF E-5 Population and Housing Estimates, US Census
Bureau 2018 5-year, CoreLogic May 2020
Tenure refers to whether someone rents or owns the home they live in. In Lake Elsinore, most homes are
owner-occupied (68 percent) and only 32 percent are renter-occupied. While the tenure distribution in
Lake Elsinore has remained relatively consistent since 2010, there was slight increase in the proportion of
owner occupied-households (66 percent in 2010) compared to renter-occupied households (34 percent
in 2010).
Census data also indicate that one percent of owner units and 4.5 percent of rental units are vacant.
Four percent is considered to be a healthy vacancy rate – one that permits sufficient choice among a
variety of housing units – although a healthy rate can be as low as two percent for ownership units and as
high as five to six percent for rental units. A limited vacancy rate is an indication that demand for housing
is outpacing supply and usually results in higher housing costs, reducing housing opportunities for lower-
income households. 2019 Census data reported that the City of Lake Elsinore had a vacancy rate of six
percent, a decrease from the 2010 vacancy rate of nine percent. The low vacancy rates in Lake Elsinore
are indicative of the tight housing market that is affecting the region and the nation at large. As the supply
of available housing decreases the price and competition for those units increases. The tightening housing
market and increase in housing costs is occurring statewide.
2021-2029 HOUSING ELEMENT PAGE – 2.9
Table 2.8: Housing Characteristics by Tenure
Housing Characteristic All Households
- Owner Households Renter Households All Households
Total Housing units 11,971 (68%) 5,693 (32%) 17,664*
Vacancy Rate 1.0% 4.5% 6.1%
Overcrowded Units 637 (3.8%) 883 (5.3%) 1,520 (9.0%)
Note: 2020 CA DOF E-5 Population and Housing Estimates did not include a breakdown of data by tenure. Total housing
units is from the US Census Bureau 2018 5-year data.
*Housing units by tenure reflect only occupied units
Source: 2020 CA DOF E-5 Population and Housing Estimates, US Census Bureau 2019 ACS 5-year Estimates
Overcrowding
In response to a mismatch between household income and housing costs in a community, some
households may not be able to buy or rent housing that provides a reasonable level of privacy and space.
According to both California and federal standards, a housing unit is considered overcrowded if it is
occupied by more than one person per room (excluding kitchens, bathrooms, and halls). In Lake Elsinore,
nine percent of occupied housing units are overcrowded. Overcrowding is more prevalent in rental units
where 18 percent are considered overcrowded compared to owner occupied housing where only five
percent are considered overcrowded. The rise in housing costs and the limited supply of housing has
causes an increase in overcrowded units since 2010 when six percent of units were considered
overcrowded. Since 2010, overcrowding in rental units has increased from 13 percent to 18 percent
signaling a lack of adequately sized or priced units.
Figure 2.2: Overcrowding 2010-2019
Source: US Census Bureau 2010 and 2019 ACS 5-year Estimates
13%
3%
6%
18%
5%
9%
0%
5%
10%
15%
20%
Renter HHs Owner HHs All HHs
2010 2019
PAGE – 2.10 LAKE ELSINORE GENERAL PLAN
Housing Condition
The age and condition of housing stock can be an indicator of potential rehabilitation needs. Commonly,
housing over 30 years of age needs some form of major rehabilitation, such as a new roof, foundation
work, plumbing, electrical or other structural or major components. While most of the City’s housing stock
is fairly new (13 percent of housing units built in the last 10 years and more than half, or 51 percent, of
housing unit built in the last 20 years), a third, or 33 percent, is over 30 years old. This points to a need for
housing programs to address the ongoing maintenance of aging properties.
Based upon observations and experiences of the Community Development Department, the City
estimates that in 2020, fewer than 10 housing units were in severe need of replacement or substantial
rehabilitation due to housing conditions. City staff refers property owners needing assistance addressing
any code enforcement issues or violations to the Lake Elsinore Dream Center, a volunteer-driven
organization helping the Lake Elsinore community. In addition, qualified Lake Elsinore homeowners are
eligible for two home repair programs through the County of Riverside Economic Development Agency
(EDA). EDA offers two home repair programs: Home Repair Loan Program (HRLP) and Senior Home Repair
Grant (SHRG). The Home Repair Loan Program offers qualified Lake Elsinore homeowners up to $10,000
for home repair services in the form of a deferred loan. The Senior Home Repair Grant program offers up
to $6,000 grants to cover the cost of repairs with no loan or payback requirement.
Housing Cost
High housing costs can price lower-income families out of the market, cause extreme cost burdens, or
force households into overcrowded or substandard conditions.
In 2020, the median home price in Lake Elsinore, based information provided by CoreLogic, was $409,750.
This was 10.9% higher than the median price in 2019. The median home price in Riverside County as a
whole in 2020 was $250 higher than in Lake Elsinore. Home prices in Lake Elsinore differ by geography; in
the 92530 ZIP code, the median home price was $381,000, while the median home price was $430,000 in
the 92532 ZIP code.
Table 2.9: Home Sales Prices
Jurisdiction 2019 2020 % Change
Lake Elsinore $382,500 $425,250 11.2%
Corona $509,000 $530,000 4.1%
Murrieta $435,000 $480,000 10.3%
Riverside (city) $428,000 $529,000 23.6%
Temecula $494,000 $530,000 7.3%
Riverside County $390,000 $441,000 13.1%
Source: CoreLogic California Home Sales Activity by City, August 2020
According to the U.S. Census 2019 five-year estimates, 32 percent of Lake Elsinore households live in
rental housing. Census data show that the average rent in Lake Elsinore is $1,476 per month. Table 2.10
2021-2029 HOUSING ELEMENT PAGE – 2.11
compares median rents in Lake Elsinore and HUD-determined fair market rents for Riverside County. Fair
Market Rent is the rent amount, including utilities (except telephone), to rent privately owned, existing,
decent, safe, and sanitary rental housing of modest (non-luxury) nature with suitable amenities. The Fair
Market Rent rate established by Department of Housing and Urban Development (HUD) to be used as a
basis for paying federal housing assistance programs like the Housing Choice Voucher Program. Table 2.10
shows that rents in the City generally align with the HUD-determined fair market rents. This indicates that
the City is generally considered reasonably affordable.
Table 2.10: Rents in Lake Elsinore and Riverside County
Year Efficiency One-Bedroom Two-Bedroom Three-Bedroom Four-Bedroom
2019 Median Rent Lake
Elsinore
$885 $1,001 $1,238 $1,704 $2,119
FY 2020 FMR Riverside
County
$875 $1,030 $1,289 $1,789 $2,216
Source: US Census Bureau 2010 and 2019 ACS 5-year Estimates, FY2020 Fair Market Rents. U.S Department of Housing and
Urban Development (HUD)
Special Housing Needs
Housing Element law requires local governments to include an analysis of housing needs for residents in
specific special needs groups and to address resources available to address these needs. Table 2.11
summarizes the number of special needs households.
Table 2.11: Special Needs Groups
Special Needs Category Count Percent
Persons with Disabilities 5,937 persons 9% of residents
Persons with Developmental Disabilities 735 persons 1% of residents
Older Adults (65+ years) 4,764 persons
2,150 households
7% of residents
12% of households
Large Households (5+ members) 4,464 households 25% of households
Farmworkers 86 persons 0.3 % of labor force
Female Headed Households 3,622 households 21% of households
People Experiencing Homelessness 50 persons N/A
Source: US Census Bureau 2019 ACS 5-year Estimates, Riverside County Health Informatics, CA Department of
Developmental Services
Persons with Disabilities, Including Developmental Disabilities
Disabled residents face housing access and safety challenges. Disabled people, in most cases, are of
limited incomes and often receive Social Security income only. As such, most of their monthly income is
often devoted to housing costs. In addition, disabled persons may face difficulty finding accessible housing
(housing that is made accessible to people with disabilities through the positioning of appliances and
PAGE – 2.12 LAKE ELSINORE GENERAL PLAN
fixtures, the heights of installations and cabinets, layout of unit to facilitate wheelchair movement, etc.)
because of the limited number of such units.
Table 2.12: Disability
Age Category # with a
Disability
% of Age Group
with a Disability
0 to 5 years 46 1%
5 to 17 years 573 4%
18 to 34 years 918 6%
35 to 64 years 2,426 10%
65 to 74 years 804 29%
75+ years 1,170 58%
Total 5,937 9%
Source: US Census Bureau 2019 ACS 5-year Estimates
In Lake Elsinore, 5,937 residents (nine percent) are living with a disability, of which 735 or one percent of
residents are living with a developmental disability. The 35 to 64 years age group constitutes the group
with the largest number of disabilities, with 2,426 but that number constitutes only 10 percent of the age
group. As age increases, so does the percentage of residents that have a disability; for residents who are
75 years and over, more than half (58 percent) have a disability and for residents between the age of 65
and 74, 29 percent have a disability.
The State Department of Developmental Services (DDS) provides community-based services to persons
with developmental disabilities and their families through a statewide system of 21 regional centers. The
Inland Regional Center serves residents in Lake Elsinore. The center is a private, non-profit community
agency that contracts with local service providers to offer a wide range of services to individuals with
developmental disabilities and their families. In Lake Elsinore, 735 persons are reported as consumers of
the services provided at the local Regional Center. The largest age group of consumers are those ages 0-
17, who represent 54.8 percent of the total consumers, followed by those ages 18 and older, at 45.2
percent of the total consumers.
Factors such as affordability and design significantly limit the supply of housing available to households of
persons with disabilities. The most obvious housing need for persons with disabilities is housing that is
adapted to their needs. Location of housing is also an important factor for many persons with disabilities,
as they often rely upon public transportation to travel to necessary services and shops. “Barrier free”
housing, accessibility modifications, proximity to services and transit, and group living opportunities are
important in serving this group. The City works with applicants who need special accommodations in their
homes to ensure that application of building code requirements does not create a constraint. Cities and
counties are required to consider requests for accommodations related to housing for people with
disabilities and provide the accommodation when it is determined to be “reasonable” based on fair
housing laws and case law interpreting the statutes. The City actively provides reasonable accommodation
for persons with disabilities seeking fair access to housing in the application of City zoning and building
regulations. In June 2019 the City adopted an amendment to the LEMC (Title 17.415.150 Reasonable
Accommodation) formalizing a reasonable accommodation process.
2021-2029 HOUSING ELEMENT PAGE – 2.13
Older Adults (65+ years)
Many senior-headed households have special needs due to their relatively low incomes, disabilities or
limitations, and dependency needs. Many
people aged 65 years and older live alone and
may have difficulty maintaining their homes,
may be retired and living on a limited income,
and are more likely to have high health care
costs and rely on public transportation,
especially those with disabilities. The limited
income of many older adults often makes it
difficult for them to find affordable housing.
Specific housing needs of the senior population
include affordable housing, supportive housing
(such as intermediate care facilities), group homes, and other housing that includes a planned service
component.
In Lake Elsinore, there are 4,764 residents age 65 years and older, representing 7 percent of the City’s
population. The City has 2,150 senior households (12 percent of all households) , of which 25 percent are
renters and 75 percent homeowners. Fewer senior-headed households live in poverty than households in
the City as a whole. For residents 65 years and older, 9 percent live in poverty, which is lower than the 15
percent poverty rate for the City as a whole. A larger proportion of senior households own their home (75
percent) compared to all households in the City who own their home (68 percent).
Table 2.13: Older Residents/Households
Number Percent
Residents
Age 65 and over 4,764 7%
Age 65 and over with a Disability 1,975 41%
Age 65 and over Living in Poverty 4,764 9%
Households
Senior Households* 2,150 12%
Owners 1,616 75%
Renters 534 25%
* Note: Households where Householder (the person in whose name the
housing unit is owned or rented ) is 65 years or older
Source: US Census Bureau 2019 ACS 5-year Estimates
The City provides a range of recreation, education, and assistance programs for seniors (55 years of age
or older) through the Lake Elsinore Senior Activity Center. Services include paralegal services, blood
pressure clinics, health screenings, C.A.R.E., LIHEAP, FREE notary services, health, and education programs
and housing information distribution. The Center also has a Nutrition Program sponsored by Riverside
County for residents 60 years and older which provides daily meals for qualifying seniors. Home-delivered
FEWER SENIOR-HEADED HOUSEHOLDS LIVE
IN POVERTY THAN HOUSEHOLDS IN THE
CITY AS A WHOLE. FOR RESIDENTS 65 YEARS
AND OLDER, 9.8 PERCENT LIVE IN POVERTY,
WHICH IS LOWER THAN THE 16.4 PERCENT
POVERTY RATE FOR THE CITY AS A WHOLE.
PAGE – 2.14 LAKE ELSINORE GENERAL PLAN
meals for housebound seniors are also available. The Riverside County Office on Aging also provides
support to family caregivers who are caring for or helping an older relative and can assist in coordinating
services to help family members maintain their caregiving roles. The National Family Caregiver Support
Program identifies gaps in services and provides Riverside County Office on Aging with a foundation to
develop programs, in collaboration with other agencies, to help family caregivers cope with the many
demands of caring for relatives.
In Lake Elsinore, there is one senior housing development, Parkside Apartments, which provides 37 units
of affordable housing. Additional affordable housing would benefit this population since they often have
fixed incomes that may not allow for the financial flexibility necessary to acquire suitable housing. In
addition to overpayment problems faced by seniors with fixed incomes, many seniors are faced with
various disabilities. Smaller, more affordable housing units allow for a greater accommodation of their
lifestyles. Program 14 in the Housing Plan (Chapter 6) includes an action item to give priority to
development projects that include a component for special needs groups including older adults, disabled,
developmentally disabled, large families, the homeless, farmworkers, and extremely low-income
households. Seniors can also receive assistance through the Housing Choice Voucher (Section 8) rental
assistance program managed by the Housing Authority of Riverside County. According to the State of
California Community Care Licensing Division, there are ten senior assisted living facilities in Lake Elsinore
with a total of 60 beds.
Large Households (5+ members)
Large households, defined by HCD as households containing five or more persons, have special housing
needs due to the limited availability of adequately sized, affordable housing units. As unit size increases,
so too does housing cost which generally translates to a higher percentage of household income necessary
to support the cost of housing. This may lead to overcrowding as large households turn to find smaller,
more affordable housing units which may not be large enough to adequately accommodate all household
members. Securing housing large enough to accommodate all members of a household is more
challenging for renters because multi-family rental units are typically physically smaller than single-family
units. Most apartment complexes do not have 4- or 5-bedroom units and as bedroom count increases,
the affordability of a housing unit usually decreases.
Table 2.14: Large Households
Number Percent
Large Households 4,464 25%
Owners 2990 67%
Renters 1,474 33%
% Large Families Living
in Poverty* 761 19%
* Note: Poverty data available only for large families not households.
Most large households (89%) in Lake Elsinore are families.
Source: US Census Bureau 2019 ACS 5-year Estimates
2021-2029 HOUSING ELEMENT PAGE – 2.15
As shown in Table 2.14, a quarter of all Lake Elsinore households (4,464 households) are considered large
households. Most large households own their home. There are 2,990 owner-occupied, large households
(67 percent of all large households), and 1,474 renter-occupied, large households (33 percent of all large
households). In 2019, 19 percent of large families lived in poverty, a much larger proportion than all
families in the City (of which 12 percent lived in poverty).
Lower and moderate-income large households can benefit from many of the same programs that benefit
other special needs households. In Lake Elsinore there are four affordable housing developments that can
accommodate large families including the 113-unit Pottery Court development, the 126-unit Villa Siena
Apartments, the 81-unit Mission Trail Apartments, and the 143-unit Cottages at Mission Trail
development. Program 14 in the Housing Plan (Chapter 6) includes an action item to give priority to
development projects that include a component for special needs groups including older adults, disabled,
developmentally disabled, large families, the homeless, farmworkers, and extremely low-income
households. Large households can also receive assistance through the Housing Choice Voucher (Section
8) rental assistance program managed by the Housing Authority of Riverside County.
Farmworkers
Due to the high cost of housing and low wages, a significant number of migrant farm workers have
difficulty finding affordable, safe, and sanitary housing. In Lake Elsinore, only 86 residents, or 0.3% of the
workforce (16 years or older) work in agriculture. Maps from the State of California Department of
Conservation Farmland Mapping and Monitoring Program show no farmland in Lake Elsinore. Due to the
low number of agricultural workers in the City, the housing needs of migrant and/or farm workers can be
met through general affordable housing programs. The Housing Plan (Chapter 6) includes a various
programs aimed at increasing the amount off affordable housing in Lake Elsinore (Programs 6, 7, and 8).
Female-Headed Households
Single-parent households require special consideration and assistance because of the greater need for
day care, health care, and other services. In particular, female-headed households with children tend to
have lower incomes and a greater need for affordable housing and accessible daycare and other
supportive services. The relatively low incomes earned by female-headed households, combined with the
increased need for supportive services, severely limit the housing options available to them.
Table 2.15: Female Headed Households
Number Percent
Female-Headed Households 3,622 21%
Female-Headed Households with Own Children 1,229 7%
Owners* 1,318 50%
Renters* 1,343 50%
% Large Families Living in Poverty* 729 27%
* Note: Data available only for families not households.
Source: US Census Bureau 2019 ACS 5-year Estimates
PAGE – 2.16 LAKE ELSINORE GENERAL PLAN
In Lake Elsinore, 3,622 (21 percent) of households are female headed and 1,229 are female headed and
have children of their own. Female headed households are evenly split between renters and owners. A
larger proportion of female-headed families live in poverty (27 percent) compared to all Lake Elsinore
families (12 percent).
Female-headed households can benefit from many of the same programs that benefit other special needs
households, particularly County programs that provide direct rental assistance or local programs that will
facilitate the development of affordable housing. The Housing Plan (Chapter 6) includes various programs
aimed at increasing the amount of affordable housing in Lake Elsinore (Programs 6, 7, and 8). The Riverside
University Health System-Community Health Centers offer primary and specialty care at 12 Health Centers
throughout Riverside County that focus on residents who are uninsured, underinsured, and underserved.
One facility is in Lake Elsinore. The Lake Elsinore Family Care Center offers primary care, family planning,
perinatal care, cancer screening, adult and pediatric immunizations, tuberculosis skin testing, well
childcare and nutrition services.
People Experiencing Homelessness
Population estimates for people experiencing
homelessness are very difficult to quantify. Census
information is often unreliable due to the difficulty
of efficiently counting a population without
permanent residences. Given this impediment, local
estimates of the homeless and anecdotal
information are often the sources for estimating the
number of unhoused individuals. The County of
Riverside conducts an annual Point-in-Time (PIT)
Count that is planned, coordinated, and carried out by county agencies, city municipalities, non-profit
service providers, and volunteers, including those experiencing homelessness. The PIT Count serves as the
primary source of population data
collected countywide on individuals and families who live in places that are not meant for human
habitation (e.g., on the streets or in vehicles). In 2020, an estimated 50 unsheltered individuals lived in
Lake Elsinore, which is 2.3 percent of the total number of unsheltered individuals in Riverside County.
None of the unsheltered individuals were children or families with children; 33 of the unsheltered
individuals were male and 17 were female.
Since 2017, the City of Lake Elsinore and its Homeless Task Force have taken an aggressive and proactive
approach to address homelessness. In September 2020, the City was awarded a $3.1 million grant through
Project Homekey —a State program to purchase and rehabilitate housing, including hotels, motels, vacant
apartment buildings and other properties, and convert them into permanent, long-term housing for
people experiencing or at risk of experiencing homelessness. The funding was used for purchase costs and
renovations to The Anchor, a crisis stabilization housing complex owned by the City and operated by Social
Work Action Group (SWAG) and serving chronic homeless individuals from Lake Elsinore, Wildomar, and
TO DATE, THE CITY HAS SECURED MORE
THAN $4.8 MILLION TOWARD ITS HOMELESS
PROGRAMS AND SERVICES INCLUDING
STREET OUTREACH, CASE MANAGEMENT,
LAW ENFORCEMENT, SUPPORTIVE
SERVICES, AND HOUSING.
2021-2029 HOUSING ELEMENT PAGE – 2.17
adjacent unincorporated county areas. The Anchor has 14 separate units and can house up to 20
individuals. Each individual is selected and placed by the City’s Homeless Task Force for up to 90 days. In
addition, this grant provided the City with $336,000 toward operating expenses through June 2022.
The City was previously awarded a $1.5 million Homeless Emergency Aid Program (HEAP) funded by the
State and awarded by Riverside County’s Continuum of Care. This funding will also be used to provide
critical case management and support services at The Anchor. These on-site services will be fully provided
by SWAG. The City was also awarded $256,680 in Homeless Housing, Assistance, and Prevention (HHAP)
funding from the County of Riverside in December 2020. HHAP funding is designated to support regional
coordination and develop local capacity to address immediate homelessness challenges. This funding was
secured by the City to cover ongoing operational costs for The Anchor through June 2025. To date, the
City has secured more than $4.8 million toward its homeless programs and services including street
outreach, case management, law enforcement, supportive services, and housing.
Additional resources near Lake Elsinore include the Lake Elsinore Adult Mental Health Clinic operated by
the Riverside County Behavioral Health Department and the Dream Center, a volunteer driven
organization that helps individuals and families in the Lake Elsinore. The Dream Center operates a variety
of projects aimed at assisting persons struggling with homelessness and poverty including the HOPE food
pantry.
In 2012, the City amended its Zoning Code (Ordinance No. CC-2012-1309) to allow for the development
of emergency shelters in the C-M and M-2 zones. Program 22 is included in the Housing Plan (Chapter 6)
and directs the City to amend its Zoning Regulations and make changes to ensure compliance with Senate
Bill 2 (SB 2) for transitional and supportive housing, the Supportive Housing Streamlining Act (AB 2162)
and AB 101 (Low-Barrier Navigation Centers).
Energy Conservation Opportunities
Energy-related housing costs can directly impact the affordability of housing. While State building code
standards contain mandatory energy efficiency requirements for new development, the City and utility
providers are also important resources to encourage and facilitate energy conservation and to help
residents minimize energy-related expenses. Policies addressing climate change and energy conservation
are integrated into the Lake Elsinore Climate Action Plan. Primary avenues to address climate change in
Lake Elsinore include lowering of transportation emissions through increased bicycle, pedestrian, and
public transit travel, and increased efficiency of land use patterns, as well as reducing energy-related
emissions by increasing energy efficiency of new and existing buildings, reducing water consumption, and
increasing use of renewable energy.
Presently, Southern California Edison offers various energy conservation programs. The Energy Savings
Assistance Program helps income-qualified customers with free appliances and installation of energy-
efficient refrigerators, air conditioners, and more, as well as home efficiency solutions like weatherization.
The Home Energy Efficiency Rebate Program offers financial incentives for installing approved energy
upgrades. The Multifamily Energy Efficiency Rebate Program offers property owners and managers
incentives on a broad list of energy efficiency improvements in lighting, HVAC, insulation, and window
PAGE – 2.18 LAKE ELSINORE GENERAL PLAN
categories. These improvements are to be used to retrofit existing multi-family properties of two or more
units. Additionally, the Southern California Gas Company offers various rebate programs for energy-
efficient appliances and makes energy-efficient kits available to residents at no cost. The Southern
California Gas Company also offers no-cost weatherization and furnace repair or replacement services for
qualified limited-income customers.
At-Risk Housing Analysis
State housing law requires an inventory and analysis of government-assisted dwelling units eligible for
conversion from lower-income housing to market rate housing during the next 10 years. Reasons for this
conversion may include expiration of subsidies, mortgage pre-payments or pay-offs, and concurrent
expiration of affordability restrictions.
Pursuant to Government Code Section 65863.11, the State maintains a list of “Entities Interested in
Participating in California's First Right of Refusal Program” at https://www.hcd.ca.gov/policy-
research/docs/HPD-00-01.xlsx. This list includes various entities working in County and several entities
interested in properties located in any county. If a development becomes at risk of conversion to market-
rate housing, the City will maintain contact with local organizations and housing providers who may have
an interest in acquiring at-risk units and will assist other organizations in applying for funding to acquire
at-risk units.
Based on City records and information from the California Housing Partnership Corporation, in the next
10 years (2021-2031) no assisted units have expiring affordability covenant.
2021-2029 HOUSING ELEMENT PAGE – 2.19
Table 2.16: Affordable Housing Developments
Project Name
Tenant
Type
Total
Units
# of
Affordable
Units Funding Program
Earliest Conversion
Date
Pottery Court
Large
Family 113 111
LIHTC; RDA Low-
and Moderate-
Income Housing
Fund
2066
Villa Siena
Apartments
Large
Family 126 124 LIHTC 2052
Lakeview I At-Risk 88 87 LIHTC; HUD; USDA 2065
Lakeview II
At-Risk 64 63
LIHTC; HUD; RDA
Low- and
Moderate-Income
Housing Fund
2065
Mission Trail
Apartments Large
Family 81 80
LIHTC; Low- and
Moderate-Income
Housing Asset Fund;
Fund 106
2076
Cottages at Mission
Trail Large
Family 143 142
LIHTC; Low- and
Moderate-Income
Housing Asset Fund;
Fund 106
2076
Parkside
Apartments
Older
Adults 37 37 USDA 2037
Lakeside
Apartments Family 128 52 Multi-Revenue
Housing Bonds 2054
Broadway
Machado
Apartments
Family 28 14 Housing Authority
of Riverside County N/A
Fairview
Apartments Family 16 16 Housing Authority
of Riverside County N/A
Broadstone Rivers
Edge Apartments Family 184 28
Lake Elsinore
Redevelopment
Agency Restrictions
2060
Total 1,008 754
Source: California Housing Partnership, City of Lake Elsinore 2020
Projected Housing Need (RHNA)
Housing Element law requires a quantification of each jurisdiction’s share of the regional housing need as
established in the RHNA Plan prepared by the jurisdiction’s council of governments. HCD, in conjunction
with the SCAG, determine a projected housing need for the region covered by SCAG: the counties of
Riverside, San Bernardino, Los Angeles, Orange, Ventura, and Imperial. This share, known as the Regional
Housing Needs Allocation (RHNA), is 1,341,834 new housing units for the 2021-2029 planning period
PAGE – 2.20 LAKE ELSINORE GENERAL PLAN
throughout the SCAG region. SCAG has, in turn, allocated this share among its constituent jurisdictions,
distributing to each its own RHNA divided along income levels.
The City of Lake Elsinore has a RHNA of 6,681 housing units to accommodate in the housing element
period. The income distribution is as shown in Table 2.17.
Table 2.17: Regional Housing Needs Allocation 2021-2029
Income Group % of County AMI
Number of Units
Allocated
Percent of Total
Allocation
Very Low1 <= 50% AMI 1,878 28.1%
Low >50% to <= 80% AMI 1,099 16.4%
Moderate >80 to <= 120% AMI 1,134 17.0%
Above Moderate >120% AMI 2,570 38.5%
Total --- 6,681 100.0%
Note: Pursuant to AB 2634, local jurisdictions are also required to project the housing needs of extremely
low-income households (0-30% AMI). In estimating the number of extremely low-income households, a
jurisdiction can use 50% of the very low-income allocation or apportion the very low-income figure based
on Census data. Therefore, the City’s very low-income RHNA of 1,873 units can be split into 939
extremely low-income and 939 very low-income units.
• Extremely Low-Income Households earn <= 30% of AMI.
• Very Low-Income Households earn >30% to <= 50% of AMI.
• Low-Income Households earn >50% to <= 80% of AMI.
• Moderate-Income Households earn >80 to <= 120% of AMI (federal data uses <= 100%).
• Above Moderate-Income Households earn >120% of AMI (federal data uses >100%).
2021-2029 HOUSING ELEMENT PAGE – 3.1
lake elsinore general plan
housing element
3. HOUSING CONSTRAINTS ANALYSIS
This section discusses potential constraints on the provision and cost of housing development in Lake
Elsinore. The key factors constraining housing development include land availability, the economics of
development, and governmental regulations, all of which may impact the cost and amount of housing
produced. According to State Housing Element Law, the constraints analysis must demonstrate local
efforts to remove barriers to achieving goals for housing production and housing for persons with
disabilities. Should constraints preclude the achievement of housing goals, jurisdictions are required to
address and, where appropriate and legally possible, remove governmental constraints to the
maintenance, improvement, and development of housing. Where constraints to housing production
related to the City’s regulations or land use controls are identified, appropriate programs to mitigate
these constraints are included in the Housing Plan.
Non-governmental Constraints
Many factors affecting housing costs are related to the larger housing market. The availability of land, the
cost and availability of financing the price of land, and the cost of construction all contribute to the cost
of housing and can hinder the production of affordable housing. Additionally, the availability of financing
can limit access to homeownership for some low-income households.
Development Costs
Building materials are a significant cost factor associated with residential building, which can represent a
significant portion of the sales price of a home. An indicator of construction costs is Building Valuation
Data compiled by the International Code Council (ICC). The unit costs compiled by the ICC include
structural, electrical, plumbing, and mechanical work, in addition to interior finish and normal site
preparation. These national data do not consider regional differences, nor do the data include the price
of the land upon which the buildings are built. The 2020 national averages for costs per square foot of
apartment units and single-family homes are as follows:
PAGE – 3.2 LAKE ELSINORE GENERAL PLAN
• Type I or II, Multi-family: $167.27 to $147.35 per sq. ft.
• Type V (Wood Frame), Multi-family: $117.40 to $112.76 per sq. ft.
• Type V (Wood Frame), One- and Two-family Dwelling: $130.04 to $122.46 per sq. ft.
Another factor related to construction cost is development density. With an increase in the number of
units built in a project, overall costs generally decrease as builders can benefit from the economies of
scale. This reduction in costs is of particular benefit when density bonuses are utilized for the provision of
affordable housing. However, higher density developments that require underground parking or concrete
or steel foundation components generally are more costly than wood-frame construction, so higher
densities overall do not always equate to lower costs. In Lake Elsinore, where buildings typically are no
more than three stories, this is not of concern.
The price of land can be the most significant component of housing development costs. Land costs may
vary depending on whether the site is vacant or has an existing use that must be removed. Similarly, site
constraints such as environmental issues (steep slopes, soil stability, seismic hazards, or flooding) can also
be factored into the cost of land. The cost of land in Lake Elsinore and surrounding cities has risen
substantially since the 1990s due to a decrease in the availability of vacant or otherwise developable land
in the Inland Empire region. Current market volatility may result in lower land prices, although the
economic impact of COVID-19 is largely unknown. The high cost of land is a contributing factor to the lack
of affordable housing across Southern California.
Land Availability and Cost
The cost of land directly influences the cost of housing. Land prices are determined by several factors,
most important of which are land availability and permitted development density. As land becomes
scarcer, the price for land increases. In terms of development density, land prices are positively correlated
with the number of units permitted on each lot. Thus, a higher density lot may command a higher price
than one designated for lower densities, but upon completion the developer may realize a higher profit
margin based on a greater number of units sold.
Over the past few decades, vacant residential land sales have increased due to the highly active Southern
California housing market. Even in this market environment, there are significant differences in land prices
in the region. In general, land prices in Riverside County are more affordable than the pricier Los Angeles
and Orange County markets; in fact, the lack of inexpensive residential land in Los Angeles and Orange
Counties was a major impetus for the development of the Inland Empire, including Lake Elsinore and
western Riverside County. Accordingly, Lake Elsinore, along with other cities within Riverside County,
provides more affordable housing for workers commuting to Orange County and Los Angeles County.
Although land prices remain a significant cost component of a new home, land prices in Lake Elsinore do
not significantly constrain the production of housing relative to surrounding jurisdictions. In fact, the land
costs in Lake Elsinore are more conducive to construction than other areas of Riverside County and have
contributed to the potential for single-family market rate units to be constructed which are generally
affordable to moderate, and in some cases, lower income households.
2021-2029 HOUSING ELEMENT PAGE – 3.3
Labor Costs
The California Labor Code applies prevailing wage rates to public works projects exceeding $1,000 in value.
Public works projects include construction, alteration, installation, demolition, or repair work performed
under contract and paid for in whole or in part out of public funds. While the cost differential in prevailing
and standard wages varies based on the skill level of the occupation, prevailing wages tend to add to the
overall cost of development.
For developers pursuing projects using SB35 streamlining provisions, a key requirement is that the
developer pay prevailing wages. In other circumstances where no public subsidies or funding is involved,
this requirement does not apply.
Financing
The availability of financing affects a person’s ability to purchase or improve a home; the cost of borrowing
money for residential development is incorporated directly into the sales price or rent. Interest rates are
determined by national policies and economic conditions, and there is virtually nothing a local
government can do to affect these rates. Jurisdictions can, however, offer interest rate write-downs to
extend home purchasing opportunities to a broader economic segment of the population. In addition,
government-insured loan programs are an option available to some households to reduce mortgage
requirements.
Under the federal Home Mortgage Disclosure Act (HMDA), lending institutions are required to disclose
information on the disposition of loan applications and the income, gender, and race of loan applicants.
The availability of financing for a home greatly affects a person’s ability to purchase a home or invest in
repairs and improvements.
As shown in Table 3.1, a total of approximately 48,200 households applied for conventional mortgage
loans to purchase homes in the Riverside-San Bernardino-Ontario Metropolitan Statistical Area (MSA) in
2017, of which Lake Elsinore is a part. The data include purchases of one- to four-unit homes, as well as
manufactured homes.
More than half of the loan applications were received from households that reported their income as
above-moderate income (earning greater than 120 percent of Median Family Income [MFI]). Moderate-
income households (80 to 120 percent of MFI) and lower-income households (less than 80 percent MFI)
accounted for 21 percent and 14 percent, respectively. Sixty-nine percent of total applications were
originated (approved by lenders and accepted by applicants) and 11 percent were denied, with the
remaining applications withdrawn, closed for incompleteness, or not accepted by the applicants. Denial
rates were lower for the upper-income group.
PAGE – 3.4 LAKE ELSINORE GENERAL PLAN
Table 3.1: Disposition of Conventional Home Purchase Loan Applications in
Riverside-San Bernardino-Ontario MSA
Applicant Income
Total
Applications
Percent of
Total
Originated Denied
Number Percent Number Percent
Lower- Income
(<80% MFI)
6,540 14% 3,800 58% 1,228 19%
Moderate-Income
(80 to <= 120% MFI)
9,951 21% 6,721 68% 1,101 11%
Upper-Income
(>120% MFI)
30,525 63% 21,734 71% 2,867 9%
Totals 48,209 100% 33,048 69% 5,325 11%
Note(s): Totals do not equal the sum of Total Applications due to the unavailability of income data for some applicants.
Source(s): Home Mortgage Disclosure Act (HMDA), 2016-2017.
Government-backed lending represents a significant alternate financing option for Lake Elsinore
residents. About 35,900 Riverside/San Bernardino-area households applied for government-backed
lending in 2017 (see Table 3.2). Usually, low-income households have a better chance of getting a
government-assisted loan than a conventional loan. However, in 2017, the number of applications for
conventional loans exceeded that for governmental-assisted loans by approximately 26 percent.
The 2019 Analysis of Impediments for Riverside County analyzed the most recent available Home
Mortgage Disclosure Act (HMDA) data for 2017 and found that the County and Fair Housing Council of
Riverside County (FHCRC) have made great strides toward helping low-income and minority purchasers
achieve a more level playing field in terms of lending outcomes. In 2017, no low-income minority group
had a loan approval rate (purchase, refinance, or home improvement) that was disproportionately lower
than that of non-Hispanic White applicants. Through its private and public grant funding sources, FHCRC
provided extensive homebuyer education, credit counseling, fair housing counseling, and awareness
training to first-time home buyers and homeowners, particularly low-income and very low-income
applicants. With respect to steering, there was insufficient publicly available data to support the charge
that real estate agents in Riverside County are steering clientele into particular neighborhoods based on
protected status. Additionally, HMDA data suggest that at least from a lending perspective, loan approval
rates for home purchases were within 10 percentage points when comparing census tracts with high
concentrations of minorities as well as for tracts with low concentrations of minorities. Similarly, family
income levels for residents of census tracts where loan applicants were applying did not appear to impact
lending decisions, as 71 percent of home purchase loans for properties located in low-income census
tracts were approved, 77 percent of loans for middle-income tracts were approved, and 75 percent of
loans for upper income census tracts were approved.
2021-2029 HOUSING ELEMENT PAGE – 3.5
Table 3.2: Disposition of Government-Assisted Home Purchase Loan
Applications for the Riverside-San Bernardino-Ontario MSA
Applicant Income Total Applications
Percent of
Total
Originated Denied
Number Percent Number Percent
Lower-Income
(<80% MFI)
6,993 20% 4,525 65% 932 13%
Moderate-Income
(80 to 120% MFI)
12,362 35% 8,935 72% 1,138 9%
Upper-Income
(>120% MFI)
16,268 45% 11,998 74% 1,372 8%
Totals 35,874 100% 25,573 71% 3,469 10%
Note(s): Totals do not equal the sum of Total Applications due to the unavailability of income data for some applicants.
Source(s): Home Mortgage Disclosure Act (HMDA), 2016-2017.
According to a 2017 HUD Comprehensive Housing Market Analysis, the improvement in the sales housing
market since 2012 led to a reduction in the rate of seriously delinquent (90 or more days delinquent or in
foreclosure) home loans and real estate-owned (REO) properties in the Riverside-San Bernardino-Ontario
submarket. As of December 2016, 1.9% of home loans in the HMA were seriously delinquent or had
transitioned into REO status, down from 2.4% in December 2015 (CoreLogic, Inc.) and a peak of 18.8
percent in January 2010. The 2017 rate is above the 1.3% rate for California, but below the 2.6% rate for
the nation.1
According to RealtyTrac 2, the number of Lake Elsinore homes entering the formal foreclosure process
dropped in the second quarter of 2020. This may change considering the current economic uncertainty
due to COVID-19. Program 2 enforces the City’s Abandoned Residential Property Registration Program
(Ordinance 1252) and encourage owners of houses and properties that become vacant and abandoned
due to foreclosure to maintain or rehabilitate the properties.
Government Code 65583(a)(6) Development Analysis
Government Code section 65583(a)(6) requires an analysis of requests to develop housing at densities
below those anticipated in site inventory, and to describe the length of time between receiving approval
for housing development and submittal of an application for a building permit. The analysis must also
identify local efforts to address nongovernmental constraints that create a gap in the jurisdiction’s ability
to meet RHNA by income category.
The primary non-governmental constraint is the overall cost of affordable housing development (high land
and development costs) in most parts of the State. In general, constructing affordable housing, especially
1 https://www.huduser.gov/portal/publications/pdf/RiversideCA-comp-17.pdf
https://www.huduser.gov/portal/MCCharts/MsasCharts_hc_new.html?msaID=064014,40140&msaName=Riversid
e-San%20Bernardino-Ontario,%20CA%20MSA&dt=September%2011,%202020
2 https://www.realtytrac.com/statsandtrends/foreclosuretrends/ca/riverside-county/lake-elsinore/
PAGE – 3.6 LAKE ELSINORE GENERAL PLAN
for low- and very low-income households, is not profitable to housing developers. Therefore, deed-
restricted affordable units require subsidy beyond available density or financial incentives. This places the
construction burden on non-profits and similar grant-funded housing developments and may result in
affordable projects that are not always dispersed throughout the region but are concentrated in limited
areas with lower development costs. While the City has Low- and Moderate-Income Housing Asset Funds
available to assist some qualified affordable housing projects and can offer developer incentives such as
expedited permit processing or fee deferrals, the City lacks the funding to fully mitigate the high cost of
development for all affordable housing developments. Moreover, not all projects will qualify for these
resources.
The City of Lake Elsinore will continue to facilitate housing development by providing technical assistance,
regulatory incentives, and concessions, as available and appropriate. To encourage infill residential
development in the City’s Historic Downtown District, the City has and will continue to explore land
purchases for future housing development.
In Lake Elsinore, requests for development at densities below anticipated densities are rare. In general,
and based on recent development in the City, development applications aim for densities as close as
possible to what is allowed. The length of time between receiving approval for housing development and
submittal of an application for building permit is typically less than one year, depending on project
complexity and the development consultant’s lead time to get construction documents completed. For
example, a residential project with more complex grading or drainage plans may take longer than usual
to submit permits.
Governmental Constraints
Although local governments have little influence on such market factors as interest rates and availability
of funding for development, their policies and regulations can affect both the amount of residential
development that occurs and the affordability of housing. Since governmental actions can constrain
development and affordability of housing, State law requires the Housing Element to “address and, where
appropriate and legally possible, remove governmental constraints to the maintenance, improvement,
and development of housing.” Consistent with State law (Government Code Section 65583(a)(5)) this
section addresses six potential constraints to residential housing development:
• Land use controls;
• Building codes and enforcement;
• On- and off-site improvements;
• Fees and exactions;
• Local processing and permit procedures;
• Housing for persons with disabilities; and
• Fair housing.
2021-2029 HOUSING ELEMENT PAGE – 3.7
Land Use Controls
The City’s primary policies and regulations that affect residential development and housing affordability
include the 2011 General Plan, Lake Elsinore Municipal Code (referred to in this document as Zoning Code
or LEMC), and the City’s 22 Specific Plans. In addition to a review of these policies and regulations, an
analysis of governmental constraints on housing production for persons with disabilities is included in this
section.
2011 General Plan
Chapter 2.0 of the 2011 General Plan (Community Form Element) sets forth the City's policies for guiding
local development and growth. These policies, together with zoning regulations, establish the density,
intensity, and distribution of land uses within the City. The 2011 General Plan identifies 17 land use
designations, eight of which allow for residential development offering a mix of housing types to Lake
Elsinore residents. Residential land use designations and development standards are outlined in Tables
3.3 and 3.4.
Specific Plans and Specific Plan Districts (SPD)
A specific plan is a comprehensive planning document that guides the development of a defined
geographic area in a mix of uses including residential, commercial, industrial, schools, and parks and open
space. Specific plans typically include more detailed information than the General Plan about land use,
site circulation, affordable housing programs, resource management strategies, development standards,
street improvements, and the phasing of the project. Specific plans can also be used to achieve creative
design by providing flexibility in development standards beyond those contained in the Zoning Code.
Alignment with the City’s District Plans, the LEMC, and the Community Form Chapter of the General Plan
allows the City the opportunity to consider a well-integrated design that responds to the unique location
and physical features of a site, as well as providing opportunities for public input.
The City Council has adopted 22 specific plans. Each one establishes a Specific Plan District (SPD) unique
to the planning area. A specific plan document, site plan, tentative tract map, and final tract map are
required to develop a specific plan development. Chapter 4: Housing Resources and Sites Inventory
highlights the residential capacity remaining within 17 of 22 of the City’s Specific Plans which will inform
the site inventory analysis.
LEMC Title 17 (Zoning)
The City regulates the type, location, density, and scale of residential development primarily through the
LEMC Title 17 (Zoning). Zoning regulations are designed to protect and promote the health, safety, and
general welfare of residents, as well as implement the City’s General Plan policies. Zoning regulations also
serve to preserve the character and integrity of existing neighborhoods. The City of Lake Elsinore Zoning
standards can be accessed online through the City’s website (www.lake-elsinore.org/city-
government/municipal-code). Table 3.5 lists the permitted uses in residential zones.
PAGE – 3.8 LAKE ELSINORE GENERAL PLAN
Table 3.3: Residential Land Use Designations
General Plan
Land Use Category
Corresponding
Residential Zone Districts
Densities (dwelling
units per net acre) Typical Residential Types
Hillside R-M-R, R-H 0-1 DU/acre 1 Detached single-family dwellings and small agricultural uses in areas of steep slopes
Lakeside L 0-4 DU/acre Detached single-family homes with an orientation and accessibility to the lake
Low Density R-M-R, R-R, R-E, R-H 1-3 DU/acre Detached single-family dwellings, secondary residential units, hobby farming and keeping
of animals, public and quasi-public uses
Low-Medium Density R-H, R-1 1-6 DU/acre Detached single-family dwellings, secondary residential units, public and quasi-public uses
Medium Density R-2 7-18 DU/acre Attached and detached single-family dwellings, duplexes, triplexes, fourplexes, multi-
family residential units, group quarters, public and quasi-public uses
High Density R-2, R-3, CMU, RMU 19-24 DU/acre Attached single-family dwellings, multi-family residential units, group quarters, public and
quasi-public uses
Commercial Mixed Use CMU 7-18 DU/acre 2 Emphasis on retail, service, civic and professional office uses. Residential uses are allowed
in a subordinate capacity
Residential Mixed Use RMU 19-24 DU/acre 3
Emphasis on high density residential uses, such as apartments, condos, duplexes,
triplexes, fourplexes, townhouses, boarding houses, row houses. Retail, service, civic, and
professional uses are allowed in a subordinate capacity.
1 Minimum parcel sizes apply here and are determined based on percent slope. See page 2-13 of 2011 General Plan.
2 FARs apply here. See page 2-15 of 2011 General Plan.
3 Density Bonus incentives apply here. See page 2-15 of 2011 General Plan.
Source(s): City of Lake Elsinore General Plan Appendix B General Plan/Zoning Compatibility Matrix, Sept 2014; City of Lake Elsinore General Plan Table 2-1: Land Use Designation Standards, 2020.
2021-2029 HOUSING ELEMENT PAGE – 3.9
Table 3.4: Residential Development Standards
Standards R-M-R R-R R-E R-H R-1 R-2 R-3 RMU CMU
Minimum Lot Area per Unit 10 acres 2 acres ½ acre* 12,000 sf* 6,000 sf* 7,260 sf 8,400 sf 2,420 sf* 1,815 sf
Mixed Use horizontal 1 - - - - - - - 1,850 sf* 1,850 sf*
Lot Area per Dwelling Unit
Standard/Residential - - - - - 3,630 sf* - -
≤ minimum lot area 2,420 sf/unit*
(18 du/acre) - -
≥ minimum lot area 1,850 sf/unit*
(24 du/acre) - -
Minimum Lot Width
Standard 160 ft 160 ft 100 ft 80 ft 60 ft* 60 ft 70 ft - -
Corner - - - - 65 ft - - - -
Cul-de-sac 70 ft* 70 ft* 50 ft* 45 ft* 40 ft* - - - -
Flag - - 25 ft* 25 ft* 25 ft* - - - -
Minimum Setbacks *
Front 40 ft 30 ft 30 ft* 20 ft 20 ft* 20 ft 20 ft* - -
Side 30-40 ft* 20 ft* 15 ft* 5-15 ft* 5-15 ft* 5-15 ft* 10-15 ft* - -
Rear 50 ft 50 ft 50 ft 20 ft 20 ft 15 ft* 10-15 ft* - -
Maximum Lot Coverage 10%* 20% 25% 30% 50% 50% 60%* - -
Maximum Building Height 30 ft 30 ft 30 ft 30 ft 30 ft* 30 ft* 30 ft* no height limit no height limit
Minimum Dwelling Unit Size
Single-family dwelling unit 1,400 sf 1,400 sf 1,500 sf* 1,200 sf* 1,000 sf* - - - -
Studio 450 sf 450 sf 450 sf 450 sf
1-bedroom 600 sf 600 sf 600 sf 600 sf
2-bedroom (or more) 700 sf* 700 sf* 700 sf* 700 sf*
Open Space
* Exceptions and/or specifications apply. See LEMC.
Source(s): City of Lake Elsinore Municipal Code, 2020.
PAGE – 3.10 LAKE ELSINORE GENERAL PLAN
Table 3.5: Permitted Uses in Residential Zones
Uses R-M-R R-R R-E R-H R-1 R-2 R-3 RMU CMU
Single-family Dwelling, Detached P P P P P P 2 P 3
Single-family Dwelling, Attached 10 P P
Multi-family Dwelling: P P
Duplex/Triplex/Fourplex P P P
Apartment Unit P P P P
Condominium P 5 P C C
Accessory Dwelling Unit 8 P P P P P P P P P
Emergency Shelter 9 C
Transitional Housing C P P P
Supportive Housing P P P
Manufactured/Mobile Housing 1 P P P P P
Residential Care Facility: 4 P (see below) P P P P P P C C
Residential Care for the Elderly People,
≤ 6 persons P 6
Residential Care for the Elderly People,
≥ 7 persons C 7
Note(s): This table is for reference only, refer to Lake Elsinore Municipal Code (LEMC) for the latest official zoning designations. Zoning Regulations may be amended independently of this table.
P = Permitted Use A = Accessory Use (Use permitted only if accessory to another primary use on the same site)
C = Conditional Use. Use eligible for consideration under the conditional use procedures and permitted only if the conditional use permit is approved, subject to the specific conditions of such
permit.
- = Not a permitted use.
1 In compliance with the provisions of LEMC Chapter 17.44.020-Manufactured housing.
2, 3 In compliance with the provisions of LEMC Chapter 17.76-R-1 Single-family Residential District.
4 In compliance with the provisions of LEMC Chapter 17.415.130-Residential care facilities.
5 In compliance with the provisions of LEMC Chapter 17.108-Planned Unit Development Overlay District.
6 Subject to approval by the State Department of Social Services, Community Care Licensing Division.
7 Subject to approval by the State Department of Social Services, Community Care Licensing Division.
8 Pursuant to LEMC Chapter 17.415.110-Accessory dwelling units. An accessory dwelling unit is a residential use that is consistent with the existing General Plan land use designation and zoning
designation for lots allowing residential uses.
9 Emergency shelters are permitted as a by-right use in the C-M Commercial Manufacturing District and M-2 General Manufacturing District per Zone Code Amendment No. 2012-03
(http://www.lake-elsinore.org/home/showdocument?id=9759). See LEMC Chapter 17.132.150-Emergency shelter use and development standards for details.
10 Including but not limited to rowhouses and townhomes.
Source(s): City of Lake Elsinore Municipal Code, 2020.
2021-2029 HOUSING ELEMENT PAGE – 3.11
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PAGE – 3.12 LAKE ELSINORE GENERAL PLAN
Providing for a Variety of Housing Options
Mixed-Use Developments
The City’s two mixed-use General Plan designations provide expanded opportunities for different types
of housing and increased densities. The mix of uses is intended to provide development opportunities
that combine residential and retail or service; promote pedestrian-friendly, interactive communities;
reduce reliance on vehicles; reduce traffic, emissions, and energy consumption; and strive to provide
quality of life for City residents.
Density Bonus
Developers of affordable housing are entitled to a density bonus and/or equivalent concessions of
incentives under certain circumstances. The City last updated the Zoning Code to establish density bonus
provisions in 2008. However, recent changes to State law necessitate an amendment to the Zoning Code.
Program 6 ensures that the City complies with the requirement of the State's bonus density laws set forth
in Government Code sections 65915-65918.
Multi-family Housing
Multi-family housing is permitted by right in the R-2, R-3, CMU, and RMU zones. Multi-family
developments in residential zones are subject to regulations related to the distance between buildings,
as this distance is not permitted to be less than 15 feet. Multi-family housing requires either a Major
Design Review per LEMC Sections 14.145.050 or Minor Design Review 14.145.060 for Multi-family
dwellings with no more than 4 units. Per LEMC Chapter 14.45, Major Design Review is subject to a Planning
Commission hearing, with a receive and file report to the City Council. The Minor Design Review is
administratively acted on by the Community Development Director who has the discretion to elevate it
to Planning Commission for action.
In its review of the City’s draft 2021 Housing Element, HCD asked the City to analyze whether height limits
for multifamily uses in residential zones and for those sites identified in the sites inventory could be a
potential constraint. Building height requirements in Lake Elsinore are not a constraint to development.
Table 3.4 shows that the City has a 30-foot building height limit in all residential zones and no height limit
in the two mixed use zones (RMU and CMU). Building code standards require at least 7’6” per floor plus
ceiling space for mechanical, electrical and plumbing engineering which allows for development of three
stories. The site inventory includes capacity for 2,392 lower income units on sites zoned R-3 and RMU.
The sites identified in the RMU zone (1,090 total units or 58 percent of the very low income RHNA) are
not subject to a building height requirement. The height requirement for the sites identified in the R-3
zone (1,302 total units) are not constrained by the building height requirement. Recent affordable housing
developments have been constructed in Lake Elsinore with 2 to 3 stories. The 81-unit, affordable Mission
Trails Apartment built in 2019 was developed with three floors. Additionally, Government Code section
65915(e)(1) provides that the City may administratively waive development standards, which the City
understands includes height limitations, for qualifying affordable housing projects.
PAGE – 3.13 LAKE ELSINORE GENERAL PLAN
Accessory Dwelling Units
Accessory dwelling units (ADUs) can be an important source of affordable housing since they are smaller
than primary units and they do not have direct land costs. The City permits accessory dwelling units
(formerly referred to as second units) on all residential sites containing an existing single-family home, as
consistent with State law at the time of ordinance adoption in 2019. Conditions of approval for second
units are standard and do not impede the creation of second units.
Since 2017, the State Legislature adopted additional changes to the accessory dwelling unit requirements
to promote development of ADUs. These include allowing ADUs to be built concurrently with a single-
family home, opening areas where ADUs can be built to include all zoning districts that allow residential
uses, modifying fees from utilities such as special districts and water districts, and reducing parking
requirements. AB 2299 provides that any existing ADU ordinance that does not meet the new
requirements is null and void as of January 1, 2017. In such cases, a jurisdiction must approve ADUs based
on Government Code Section 65852.2 until the jurisdiction adopts a compliant ordinance. Jurisdictions
are not required to create ordinances for ADUs; however, any jurisdiction that does adopt an ADU
ordinance must submit the ordinance to HCD within 60 days. In March 2021, the City adopted
amendments to the Municipal Code’s accessory dwelling unit provisions to reflect changes in the State
law that went into effect on January 1, 2020. In Lake Elsinore, ADU applications are reviewed by the
Community Development Deportment within two to three weeks. Program 19 in the Housing Plan
commits the City to adopting an updated ADU ordinance to comply with any subsequent changes to
Government Code Section 65852.2.
Emergency Shelters and Low Barrier Navigation Centers
SB 2 from the 2007-2008 legislative session requires jurisdictions to identify zones within which
emergency shelters are permitted without a conditional use permit or other discretionary permits. In
2012, the City amended the Zoning Code (Ordinance No. CC-2012-1309) to allow for the development of
emergency shelters. Consistent with SB 2, emergency shelters are permitted as a by-right use in the C-M
(Commercial Manufacturing) and M-2 (General Manufacturing) zones. LEMC Title 17.132.150 (Emergency
shelter use and development standards) outlines development standards and operational regulations
consistent with State law.
The C-M and M-2 zones encompass 194 acres, centrally located and easily accessible. Properties in these
two zones are either undeveloped or developed with commercial/business park buildings with a variety
of light industrial and commercial uses. The 2020 County of Riverside Point-in-Time (PIT) Count identified
50 unsheltered individuals in Lake Elsinore. In September 2020, the City was awarded a $3.1 million State
grant which was used to purchase and renovate The Anchor, a crisis stabilization housing complex serving
chronic homeless individuals from Lake Elsinore, Wildomar, and adjacent unincorporated county areas.
The Anchor has 14 separate units and can house up to 20 individuals. The acreage in the C-M and M-2
zones provide ample opportunity for the establishment of shelters to house the remaining 30 unsheltered
individuals in the City either through new shelter construction or reuse of existing building space in the
zones. The C-M and M-2 zoned-properties are located just south of the Central Avenue exit on Interstate
15 and the area is served by Riverside Transit Agency lines (8 and 9) and two commuter link express bus
lines (205 and 206). The C-M and M-2 zones are located within walking distance from the Lake Elsinore
Outlet Center and two major commercial centers.
PAGE – 3.14 LAKE ELSINORE GENERAL PLAN
The City’s Zoning Code describes emergency shelters as follows:
• Emergency shelters provide short-term shelter (usually for up to six months of stay) for homeless
persons or persons facing other difficulties, such as domestic violence.
State law (AB 101), as of June 2019, requires that low-barrier navigation centers be allowed as a by-right
use in areas zoned for mixed use and nonresidential zones permitting multi-family uses (by-right or
conditionally). California Government Code section 65660 defines a low barrier navigation center as
follows:
• A Housing First, low-barrier, service-enriched shelter focused on moving people into permanent
housing that provides temporary living facilities while case managers connect individuals
experiencing homelessness to income, public benefits, health services, shelter, and housing. "Low
Barrier" means best practices to reduce barriers to entry, and may include, but is not limited to,
the following:
o The presence of partners if it is not a population-specific site, such as for survivors of
domestic violence or sexual assault, women, or youth.
o The presence of pets.
o The storage of possessions.
o Privacy, such as partitions around beds in a dormitory setting or in larger rooms
containing more than two beds, or private rooms.
Program 22 is proposed to ensure that the City meets the requirements of AB 101.
Transitional and Supportive Housing
SB 2 from the 2007-2008 legislative session requires that transitional housing and supportive housing be
considered residential uses and are subject only to the standards applied to residential uses in the same
zone. In 2012, the City amended the Zoning Code (Ordinance No. CC-2012-1309) to allow for the
development of transitional housing, and supportive housing. Transitional housing and supportive
housing are permitted in, and subject to the standards outlined in, the R-3, RMU, and CMU zones.
The City’s Zoning Code describes transitional housing and supportive housing as follows:
• Transitional housing provides longer-term housing (up to two years), coupled with supportive
services such as job training and counseling to individuals and families who are transitioning to
permanent housing.
• Supportive housing refers to housing with no limit on length of stay. Supportive housing is often
coupled with on- or off-site services such as job training, alcohol and drug abuse programs, and
case management for populations in need of assistance, such as people experiencing
homelessness, those suffering from mental illness or substance abuse problems, and older or
medically frail persons.
SB 2 requires that the City treat transitional and supportive housing as a residential use and only subject
to those restrictions that apply to other residential dwellings of the same type in the same zone
PAGE – 3.15 LAKE ELSINORE GENERAL PLAN
(Government Code Section 65583(a)(5)). In other words, transitional housing and supportive housing
must be permitted in all zones allowing residential uses and are not subject to requirements not imposed
on similar dwellings (e.g., single-family homes, apartments) in the same zone in which the transitional
housing and supportive housing is located. For example, transitional housing located in an apartment
building in a multifamily zone is permitted in the same manner as an apartment building in the same zone
and supportive housing located in a single-family home in a single-family zone is permitted in the same
manner as a single-family home in the same zone. The City will amend its zoning standards for transitional
and supportive housing to comply with SB 2 (Program 22).
Effective January 1, 2019, AB 2162 (Supportive Housing Streamlining Act) requires supportive housing to
be considered a by-right use in zones where multi-family and mixed uses are permitted, including
nonresidential zones permitting multi-family uses, if the proposed housing development meets the
following specified criteria (California Government Code 65651) :
(1) Units within the development are subject to a recorded affordability restriction for 55 years.
(2) One hundred percent of the units, excluding managers’ units, within the development are
dedicated to lower income households and are receiving public funding to ensure affordability of
the housing to lower income Californians.
(3) At least 25 percent of the units in the development or 12 units, whichever is greater, are
restricted to residents in supportive housing who meet criteria of the target population. If the
development consists of fewer than 12 units, then 100 percent of the units, excluding managers’
units, in the development shall be restricted to residents in supportive housing.
(4) The developer provides the planning agency with the information for providing supportive
services, with documentation demonstrating that supportive services will be provided onsite to
residents in the project.
(5) Nonresidential floor area shall be used for onsite supportive services in the following amounts:
(A) For a development with 20 or fewer total units, at least 90 square feet shall be
provided for onsite supportive services.
(B) For a development with more than 20 units, at least 3 percent of the total
nonresidential floor area shall be provided for onsite supportive services that are limited
to tenant use, including, but not limited to, community rooms, case management offices,
computer rooms, and community kitchens.
(6) The developer replaces any dwelling units on the site of the supportive housing development
in the manner provided in paragraph (3) of subdivision (c) of Section 65915.
(7) Units within the development, excluding managers’ units, include at least one bathroom and
a kitchen or other cooking facilities, including, at minimum, a stovetop, a sink, and a refrigerator.
The law prohibits the local government from imposing any minimum parking requirement for units
occupied by supportive housing residents if the development is located within a half-mile of a public
transit stop. AB 2162 also require local entities to streamline the approval of housing projects containing
a minimum amount of supportive housing by providing a ministerial approval process, removing the
requirement for CEQA analysis, and removing the requirement for conditional use authorization or other
similar discretionary entitlements. Program 22 is proposed to ensure that the City meets the requirements
PAGE – 3.16 LAKE ELSINORE GENERAL PLAN
of AB 2162, specifically that supportive housing be considered a by-right use in zones where multi-family
and mixed uses are permitted in zones outside where it is already permitted (R-3, RMU, and CMU zones).
Single-Room Occupancy Units
Single-room occupancy units (SROs) house people in single rooms, with tenants often sharing bathrooms
and kitchens. SROs are not specifically identified in LEMC Title 17 (Zoning); however, the City will review
SRO projects with the same process it uses to review hotel, motel, or multi-family housing, depending on
the project composition and zone. The density and services available in the downtown make this an ideal
location for permitting SROs. The possible conditional use permit criteria for the review of SROs pertain
to performance standards such as hours of operation, security, and parking, etc.
Manufactured and Mobile Homes
Manufactured housing, including mobile homes on permanent foundations, is permitted by right on all
lots which permit single-family houses subject to certain restrictions, pursuant to State law. The City’s
Mobilehome Community District (MC) accommodates and allow mobile homes situated on individually
owned lots. The MC district requires that mobile home parks be at least 10 acres in size.
Residential Care Facilities
Under State Lanterman Developmental Disabilities Services Act (aka Lanterman Act), small State-licensed
residential care facilities for 6 or fewer persons must be permitted in all zones that allow single- or multi-
family uses, subject to the same permit processing requirements and development standards.
Lake Elsinore is compliant with the Lanterman Act. The City permits residential care facilities for six or few
persons as by-right use in all zones allowing residential uses. Residential care facilities for seven or more
clients are not addressed in the municipal code. If a proposal for such a facility were proposed, the
Community Development Director would make a determination as to whether such a use was permitted
or if it requires a conditional use permit. Program 25 in the Housing Plan includes an action item to address
residential care facilities for 7 or more persons and to ensure that the City’s definition of residential care
facilities is consistent with State law.
Housing for Agricultural Employees
The Employee Housing Act (Government Code Section 17021.5 and 17021.6) requires that any employee
housing occupied by six or fewer employees shall be considered a single-family structure with a residential
land use and must be treated the same as a single-family dwelling of the same type in the same zone. In
addition, employee housing consisting of no more than 36 beds in group quarters, or 12 units or separate
rooms or spaces designed for use by a single-family or household, must be considered an agricultural land
use and be treated the same as any other agricultural activity in the same zone. The City’s Zoning Code
allows agriculture use in only R-M-R (Rural Mountainous Residential District) and R (Recreational District).
None of the zoning designations specifically distinguish housing for
Agricultural Employees from any other programmatic housing dedicated or developed to be affordable.
As indicated in the Community Needs Assessment, only 55 residents, or 0.1% of the workforce are
farmworkers. City records indicate that there are no agricultural operations in Lake Elsinore. Lake Elsinore
is evolving into an urbanized community and does not contain any large-scale commercial agricultural
activities. Urbanization has precluded the demand for farmworker housing. However, the City will ensure
PAGE – 3.17 LAKE ELSINORE GENERAL PLAN
complies with the State Employee Housing Act where it would apply (Section 17000 of the Health and
Safety Code) (Program 22).
Planning Districts and Spheres
The 2011 General Plan designates the City and its Sphere of Influence into eleven (11) Planning Districts
and five(5) Planning Spheres. Each Planning District and Sphere plan identifies the area’s unique
characteristics and attributes, planning context, and considerations (including possible nongovernmental
constraints). Goals, policies, and programs establish the intent for development. Each Planning District
and Sphere plan includes a land use map but does not regulate land use densities or intensities. The
Planning District and Sphere plans carry over the same land use designations as the 2011 General Plan
and defer to the area’s Specific Plan(s) for additional development regulations.
Parking Standards
The City’s parking requirements are based on unit type and size. Parking requirements for residential and
mixed-use developments are listed in Table 3.6.
Reduced parking requirements can be achieved by conducting a parking study, available to commercial or
industrial projects through compliance with LEMC Chapter 17.148.030 and more recently extended to
mixed-use projects by LEMC Chapter 17.86.070-Residential Mixed Use and LEMC Chapter 17.134.070-
Commercial Mixed Use.
PAGE – 3.18 LAKE ELSINORE GENERAL PLAN
Table 3.6: Parking Requirements
Type of Dwelling Parking Requirements
Residential Land Use Designations
Single-family Detached 2 garage spaces per DU plus 2 open spaces in a
driveway
Single-family Attached, Multi-family, Duplexes
Studio and One-bedroom unit 1 covered space, plus 2/3 open space per dwelling unit
Two- (or more) bedroom unit 1 covered space, plus 1 1/3 open space per dwelling
unit
Accessory Dwelling Unit (ADU)
1 space per bedroom or ADU, whichever is less, in a
covered, uncovered, or tandem configuration. ADU
parking is not requires in the following instances:
a. The ADU is located within one-half mile of public
transit.
b. The ADU is located within an architecturally and
historically significant historic district.
c. The ADU is contained entirely within the
permitted floor area of the existing primary
residence or an existing accessory structure.
d. When on-street parking permits are required
but not offered to the occupant(s) of the accessory
dwelling units.
e. When there is a car share vehicle located within
one block of the accessory dwelling unit.
Boarding houses, fraternities, and group living quarters 1 space per resident
Hospitals, convalescent homes and sanitariums, nursing
homes, rest homes, retirement homes, and similar
establishments
1 space for each 3 licensed beds
Mixed Use Land Use Designations
Commercial Mixed-Use District
PAGE – 3.19 LAKE ELSINORE GENERAL PLAN
Table 3.6: Parking Requirements
Type of Dwelling Parking Requirements
Residential Mixed-Use District
Nonresidential uses < 3,000 sf – no off-street parking
required
Nonresidential uses > 3,000 sf – 1 off-street parking
space required for every 250 sf beyond 3,000 sf
Places of assembly: 1 off-street parking space required
for every 21 sf of floor area
Residential parking requirements shall comply with
LEMC Chapter 17.148-Parking requirements (reflected
above)
A request to reduce the number of required parking
spaces may be made to the Planning Commission
concurrent with a design review or conditional use
permit application, provided a parking study supports
the finding that the number of parking spaces needed
for a specific project is less than that required by code
Tandem parking may be allowed for residential uses
with the approval of the Director of Community
Development
Source(s): City of Lake Elsinore Municipal Code, 2020.
Local Ordinances
State law requires that cities include an analysis of any locally adopted ordinance that impact the cost and
supply of residential development. The City has no growth control measures or urban growth limit line.
The City has no local ordinances that directly impact the cost and supply of residential development such
as inclusionary ordinances, short-term rental ordinances, or moratoriums on specific development types.
Other local ordinances, while intentionally controlling the quality of development in the community, can
also unintentionally increase the cost of development and thus the cost of housing. For example, fees and
capital improvement requirements are aimed at ensuring adequate infrastructure to serve the health,
safety and welfare of future residents. These and other potential governmental constraints which may
affect the supply and cost of housing in Lake Elsinore are discussed below.
Building Codes and Enforcement
In addition to the previously mentioned land use controls, Lake Elsinore utilizes the 2019 Edition of the
California Building Standards Code (California Code of Regulations, Title 24) to regulate building standards
including housing, plumbing, mechanical, and electrical codes. Local amendments to the building code
PAGE – 3.20 LAKE ELSINORE GENERAL PLAN
address plan check and permit fees, the appeals process, violation penalties, minimum roof covering
classifications, erosion, and the definition of enclosure, none of which add to the burden or cost of
housing.
The City utilizes its code enforcement powers in a manner that does not constrain housing development
or improvement. A goal of the Code Enforcement Division is to find solutions to problems resulting from
violations of the Municipal Code. To assist neighborhoods and businesses in preserving positive
community character, the City has established property maintenance standards. These standards are part
of the Lake Elsinore Municipal Code and establish the minimum maintenance standards for properties. To
ensure that the Municipal Code is followed, Code Enforcement Officers assist individuals in keeping their
properties in compliance. Enforcement actions are taken proactively and in response to citizen complaints
and requests for action by other City departments and outside public agencies. The abatement process
typically requires the clean-up or repair of properties that are found to be in violation of City Code. City
staff promptly responds to property maintenance complaints and is available to work with property
owners in preventing and correcting Code violations. The local enforcement of these codes does not add
significantly to the cost of housing. In situations where a property owner does not have the resources to
address violations, the City can refer them to the Lake Elsinore Dream Center.
Other building codes that the City employs include the California Energy Code 2019 Edition, as published
by the International Code Council regulating all buildings in the City with respect to State energy
requirements. No local amendments have been made. The City also uses the 2019 Edition of the California
Green Building Standards Code, as published by the California Building Standards Commission, locally
amended to address light pollution reduction.
On- and Off-Site Improvements
Site improvements in Lake Elsinore consist of those typically associated with development for on-site
improvements (fronting streets, curbs, gutters, sewer/water, and sidewalks), and off-site improvements
(drainage, parks, traffic, schools, and sewer/water). On- and off-site improvements are costs associated
with the provision of services necessary for the health and safety of the public. On- and off-site
improvements add relatively little to total cost of housing, but are costs associated with the provision of
services necessary for the health and safety of the public. Because residential development cannot take
place without the addition of adequate infrastructure, site improvement requirements are not seen as a
constraint to the development of housing.
Developed residential areas in Lake Elsinore are served by existing infrastructure. Additional infrastructure
is required for all new developments and vary depending on the existing condition of each project.
Because residential development cannot take place without the addition of adequate infrastructure, site
improvement requirements are not seen as a constraint to the development of housing. In most of the
City’s undeveloped areas, Specific Plans are in place and guide the improvements and infrastructure
provision and financing are addressed within the specific plan documents. Chapter 4: Housing Resources
and Sites Inventory shows potential sites for housing in the City’s Specific Plan areas and in developed
areas of the City where future development will be infill in nature and have full access to infrastructure.
PAGE – 3.21 LAKE ELSINORE GENERAL PLAN
Required on-site improvements for residential development are determined largely by the zoning of the
property. Lake Elsinore’s requirements for on-site improvements are typical of California communities
and are not considered to be unusually restrictive or as a constraint on the development of housing. In a
typical subdivision, minimum street right of way, which includes sidewalks, curbs, gutters and landscaped
area, must be provided. The City of Lake Elsinore General Plan’s roadway system forms the core of the
City’s circulation infrastructure and includes a hierarchy consisting of seven (7) classifications: augmented
urban arterial, urban arterial, major, secondary, collector, divided collector, and special new roadway.
Streets not shown on the General Plan’s Roadway Classification figure are considered Local Streets. The
required street width construction for a typical subdivision would most likely range from a 60-foot right
of way for local streets up to 120-foot right-of-way for an urban arterial highway (Figure 2.2 in the General
Plan’s Community Form Chapter). Narrower streets may be allowed within some adopted Specific Plans.
The costs of on- and off-site improvements are usually passed along to the homebuyer as part of the final
cost of the home. The on- and off-site improvement standards imposed by the City are typical for most
communities and do not pose unusual constraints for housing development.
Fees and Exactions
Development and Planning Fees
The City charges various fees and assessments to cover the costs of processing development permits and
providing services. Impacts fees are also charged to cover the cost or providing municipal services or
mitigating project impacts. These fees are summarized in Table 3.7. The total amount of fees varies from
project to project and are based on type, existing infrastructure, and the cost of mitigating environmental
conditions (e.g., flooding). The additional cost to develop, maintain, and improve housing due to
development fees can result in increased housing unit cost, and therefore is generally considered a
constraint to housing development. However, fees are necessary to provide planning and public services
in Lake Elsinore and in the region.
The City of Lake Elsinore has adjusted its fee system to reduce staff time, uncertainty, and cost. In the
past, most application fees were deposit-based, and projects were assigned a Cost Recovery System (CRS)
number and staff time for application processing was charged against the deposit. Once the deposit was
exhausted, additional fees were required to continue processing the applications. Any remaining CRS
funds at the end of the development review and public hearing process were refunded to the project
applicant. However, the City of Lake Elsinore has changed most applications to a flat fee. This has
eliminated the need to track staff time and related development review expenses through the Cost
Recovery System process. Only a few applications are still deposit-based and subject to the Cost Recovery
System. Residential development projects that are consistent with the General Plan and with Zoning (i.e.,
require only Conditional Use Permit and/or Design Review or tentative map approval) are subject to flat
fees and not subject to the CRS. General Plan Amendment and/or Zone changes are deposit-based fees
and thus subject the CRS, although the related applications would remain a flat fee. Any required
environmental review is also subject to the CRS. The City’s Engineering Division contracts with outside
PAGE – 3.22 LAKE ELSINORE GENERAL PLAN
firms for plan check of project related plans. City of Lake Elsinore Zoning fees can be accessed online
through the City’s website at http://www.lake-elsinore.org/city-hall/city-departments/public-
works/engineering/fees/plan-check-fees.
Tables 3.7 show that in fees in Lake Elsinore are comparable and, in some cases, lower than similar fees
for the neighboring cities of Temecula and Murrieta. A 2019 fee study by the Western Riverside Council
of Governments (WRCOG) also showed that Lake Elsinore’s fees were lower than most other cities for
multi-family development. The WRCOG study, Updated Analysis of Development Impact Fees in western
Riverside County, showed that when compared with other jurisdictions, the City of Lake Elsinore had
higher development fees for the single-family detached unit study prototype as compared with
neighboring cities, but had one of the lowest development fee estimates for the multi-family unit study
prototype.
Additional findings include:
• Average residential development impact fees for WRCOG jurisdictions are lower than the average
of selected San Bernardino County cities and higher than the average of selected Coachella Valley
cities.
• Total development impact fees for WRCOG jurisdictions represent 8.5 percent and 8.9 percent of
total development costs/returns respectively for the prototype single-family and multifamily
developments evaluated.
• Water and sewer fees together represent the greatest proportion of residential development
impact fees followed by similar proportions from other City fees, TUMF, and school fees.
• Direct construction costs represent the largest proportion of total development costs/returns,
typically followed by other land costs, other soft costs (collectively), developer returns, and
development impact fees.
The report also acknowledges that many of the fees imposed on new development are outside the
purview of the Cities themselves. These fees are set/administered by a combination of water districts,
school districts, individual cities, the County, the Western Riverside Council of Governments, the Western
Riverside County Resource Conservation Authority, and other special districts.
PAGE – 3.23 LAKE ELSINORE GENERAL PLAN
Table 3.7: Development and Planning Fees
Action/Activity Lake Elsinore 1 Murrieta 1 Temecula 2
Conditional Use Permit
Minor Conditional Use Permit (MCUP) $4,358 $4,214 -
Conditional Use Permit (CUP) $8,716 $5,801 $3,947*
Design Review
Residential $9,335 - -
Minor Design Review $4,685 - -
Development Agreement
City Staff Review $16,887** $15,000 $63,533* City Attorney Review $2,179**
Development Agreement Amendment $4,348** $10,000**
Environmental Review
Environmental Assessment/ Initial Study $11,984 + 3rd Party
Costs** $4,098* $5,359 -
$7,326
Environmental Impact Review/ Report $23,000 + 3rd Party
Costs** $15,000** $57,733 -
$85,127
General Plan
Amendment $8,876** $10,000** $4,835 -
$8,965*
Specific Plan
Specific Plan $27,238* $20,000** $100,654*
Tentative Tract and Parcel Maps
Tract $23,969 $10,949 $12,428 -
$18,012
Revised (Minor) $9,805 $3,395 $7,038 Revised (Major) $6,038
Parcel Map $10,399 $6,026 $4,733
Revised (Minor) $3,208 $3,395 $4,124 Revised (Major) $5,577
Variance
Variance $4,358 $1,611- $2,123 $4,567*
Zone Change
Zone Change $7,626** $10,000** $4,835 -
$8,965*
1 Lake Elsinore and Murrieta totals include only planning fees.
2 Temecula totals include Planning, P/W, TCSD, Fire and Police fees.
* Additional costs apply. See respective User Fee Schedules.
** Deposit vs fee amount.
Source(s): Cities of Lake Elsinore, Murrieta, and Temecula, July 2020.
PAGE – 3.24 LAKE ELSINORE GENERAL PLAN
Table 3.8 below lists an estimate of total typical fees for single-family and multi-family building permit
fees based on the square foot area of the home.
Table 3.8: Building Permit Fees
Action/Activity
1,800 sf SFR w/600
sf garage
2,000 sf SFR w/600
sf garage
2,500 sf SFR w/600
sf garage 855 sf MFR unit
Structural Plan Check $1,155 $1,233.00 $1,554 $2,125.82
Planning Review Fee $119.89 $119.89 $119.89 $566.88
Building Permit Fee $1,540 $1,643 $2,072 $2,857.42
TOTAL 2,814.89 2,995.89 $3,745.89 $5,550.12
Estimated sale price/value1 $409,750 $390,000
Estimated proportion of
building fee cost to overall
development cost/unit
>1% 1.4%
Source(s): City of Lake Elsinore staff, July 2020.
1. Median Home Sales Price in January 2020 (CoreLogic) and estimated home value for multiple family properties (condos, co-
ops) on Zillow.com on April 27, 2020.
In addition to planning application fees, many municipal jurisdictions charge impact fees, and developers
in turn incorporate those fees into housing costs, which affect housing costs for both rental and for-sale
housing. These fees can include park fees, police and fire fees, and sewer and waterline fees imposed in
accordance with new development. Low impact fees reduce constraints and expenses for moderate- and
low-income developers looking to build in the region. Impact fees for Lake Elsinore are included in Table
3.9. Some fees such as the Transportation Uniform Mitigation Fee are mandated by the County of
Riverside. The impact fees are typical for the region. As a point of comparison, the City of Murrieta (as
shown in the City’s draft 2021-2029 Housing Element), has development impact fees that total $13,853
per single-family units and $9,724 per multi-family unit plus mandated school fees.
PAGE – 3.25 LAKE ELSINORE GENERAL PLAN
Table 3.9 Impact Fees
Fees Cost
Park Capital Improvement Fund Fees
Subdivisions under 50 parcels, apartments, condominiums, fourplexes, triplexes, duplexes, single-family residences:
Single-family Residential $1,600 per unit
Duplexes $1,500.00 per unit
Triplexes $1,500.00 per unit
Fourplexes $1,450.00 per unit
Apartments $1,400.00 per unit
Subdivisions over 50 parcels: Dedicate land or pay an in-lieu fee equal to the fair market value of the land that
would have otherwise been dedicated. 1
Storm Drain Capitol Improvement Fund Fee 2
Storm Drain Capitol Improvement Fund Fee
Based on a project’s Drainage District location on a per acre basis.
$2,225-$8,675/acre.
Traffic Impact Fee
Single-family Residential $1,369.00 per unit
Multi-family Residential $959.00 per unit
Commercial Building $3.84 per sf of building
Office Building $1.45 per sf of building
Industrial Building $0.81 per sf of building
Transportation Uniform Mitigation Fee
Single-family Residential $8,873.00
Multi-family Residential 3 $6,231.00
Industrial Use $1.73 per sf
Retail Commercial Use $10.49 per sf
Service Commercial Use $4.19 per sf
Class A and B Office $2.19 per sf
Library Capitol Improvement Fund Fee
All residential properties $150.00 per dwelling unit
Development Impact Fee
Per Dwelling Unit
Single-family
Residential
Multi-family Residential
(2-4)
Multi-family
Residential (5+)
City Hall and Public Works Facilities $809.00 $696.00 $404.00
Community Center Facilities $545.00 $469.00 $272.00
Marina Facilities $779.00 $671.00 $389.00
Animal Shelter Facilities $348.00 $299.00 $174.00
Total Public Building Impact Fee $2,481.00 $2,135.00 $1,239.00
Per 1,000 Square Feet
Office Retail Industrial
City Hall and Public Works Facilities $180.00 $108.00 $36.00
PAGE – 3.26 LAKE ELSINORE GENERAL PLAN
Table 3.9 Impact Fees
Fees Cost
Fire Facilities
Single-family Residential $751.00
Multi-family Residential $612.00
Office $337.00
Retail $489.00
Industrial $159.00
1 See Development Fees for formula for determining the amount of land to be dedicated (www.lake-elsinore.org/city-hall/city-
departments/community-development/building-safety/building-related-fees)
2 Based on location as shown on the City of Lake Elsinore's Drainage Facilities Plan Map
3 Greater than eight (8) dwelling units per acre
Source(s): www.lake-elsinore.org/city-hall/city-departments/community-development/building-safety/building-related-fees
(Revised April 2016).
Processing and Permit Procedures
The processing time required to obtain approval of development permits is often cited as a contributing
factor to the high cost of housing. For some proposed development projects, additional time is needed to
complete the environmental review process before an approval can be granted. Unnecessary delays add
to the cost of construction by increasing land holding costs and interest payments. The review process in
Lake Elsinore involves up to three levels of reviewing bodies: Community Development Department and
Engineering Department, Planning Commission, and the City Council.
The City’s development timeframes are designed to accommodate development. The predominant form
of residential development in the City is single-family homes. The average processing times for single-
family and multi-family projects vary, most frequently depending on the size of the development and if a
subdivision map is involved. All new multi-family residential developments must complete a development
plan application, which is then reviewed and approved, conditionally approved, or denied by the
responsible hearing authority.
State and federal environmental resource protection is a component that can delay the processing time
for new development. Compliance with the provisions of the Western Riverside County Multiple Species
Habitat Conservation Plan (MSHCP) can require additional analysis and approvals that can add significant
time to the processing of residential development projects. Regulatory permitting such as California
Department of Fish and Wildlife (CDFW) Streambed Alteration Agreement requirements and Army Corps
of Engineers (ACOE) permitting issues also cause delays. The City has no control or jurisdiction over these
processes and requirements.
Table 3.10 lists average processing times for the various permits or procedures that may be required for
project approval. Processing times required for the various entitlement applications are reasonable and
do not represent a constraint to the preservation of housing. These timeframes are approximate and
depend on the scope of the project, number of corrections in plan check, and timeliness of the applicant’s
PAGE – 3.27 LAKE ELSINORE GENERAL PLAN
resubmittal. In addition, projects requiring environmental review and/or appeals may take longer to
process.
Table 3.10: Development Review Timeframes
Type of Process Approximate Timeframe Reviewing Body
Design Review – Minor (Up to 2 DU
per Lot) 2-3 weeks Community Development Department
Design Review 4-8 months Planning Commission
Plan Check/Building Permits
2 weeks/check
1st check; 1-week
resubmittals
Various: Building Division, Community
Development Department, Fire
Department, Engineering, Public Works
Conditional Use Permit (CUP) 3-5 months Planning Commission
Variance Up to 6 months Planning Commission
Tentative Parcel/Tract Map 4-8 months Planning Commission/City Council
General Plan Amendment 4-6 months Planning Commission/ City Council
Zone Change 4-6 months Planning Commission/ City Council
Source(s): Lake Elsinore City staff, July 2020.
Small Residential Projects
All Minor Design Review (for single-family residences [two to four units] and multi-family projects [four or
fewer units]) projects and conditional use permits require approval from the Planning Commission. Small
homes constructed on existing lots of record could be issued permits within five to six weeks of Planning
Commission approval, including Planning and Building and Safety review.
Larger Residential Projects
All Zone Changes, Specific Plans, Planned Unit Developments, Subdivisions (Parcel and Tract Maps), and
Design Review (residential projects involving four or more units) are required to be approved by the City
Council unless the project is within an approved specific plan, which may provide a shorter approval
process. Apartment developments require Planning Commission and City Council approval. As such, the
development process is increased by approximately three months from the small residential project
timeline. Larger projects with many corrections required during building permit review typically take
longer to process.
Design Review
The City has a design review process for development proposals and design concepts to verify compliance
with the City’s developments standards and to ensure a quality physical environment. The design review
process makes sure that new development, or the alteration of existing development, occurs in a manner
which enhances the character and quality of surrounding properties and that the scale, special
relationships, and architectural treatment of structures, including materials, colors, and design, visually
contribute to the area and environment in which they are located. The design review process is also
intended to apply to the ancillary elements of projects such as signs and landscaping to ensure that the
overall development maintains the same integrity of design as approved for the primary structure(s).
PAGE – 3.28 LAKE ELSINORE GENERAL PLAN
Minor design review is required for detached single-family dwelling on existing lot(s) involving a total of
two to four units and attached multiple-family dwellings not involving more than a total of four units. The
Community Development Director is the approving authority for the minor design review. Larger projects
go through a major design review process. The Planning Commission is the approving authority for the
major design review. Both reviews look at general design concepts and a limited number of findings as
listed below.
Design Review Design Concepts:
1. The scale and spatial relationship of all structures should be appropriate to the site and to
surrounding developments. Structures should be located on their lots so as to create interest and
varying vistas as a person moves along the street.
2. The design concept should complement the quality of existing development and create a visually
pleasing, non-detractive relationship between the proposed and existing projects. Garish colors
at substantial deviance to the rest of the neighborhood will be discouraged.
3. Exterior materials should evidence a concern for quality and originality. The use of a particular
material should, as a rule, exemplify the special characteristics of the product or demonstrate its
unique application. Tilt-up panels employing formed design or with exposed aggregate are
preferable to smooth-surface or painted panels. Similarly, metal as an enhancement material is
acceptable while plain metal buildings are not. Paint, in general, should be considered an
enhancement tool but should not be considered a replacement for the use of textured surfaces.
4. Visible electrical, mechanical, and special processing equipment such as vent stacks as well as
similar features should be avoided; however, if essential should be screened and such screening
should be an integral aspect of the project design.
5. The design of accessory structures, fences, and walls should be harmonious with the design of the
principal structures and should employ compatible building materials.
6. Projects should demonstrate a respect for a neighboring property’s privacy, quiet, function, or
views, and elements of the design including, but not limited to, openings, docks, and equipment
placement should not be located in such a way as to create a nuisance for an adjoining property.
7. The project should be designed in such a way that its circulation patterns and parking areas are
efficient, and do not impact traffic on adjoining rights-of-way. Adequate on-site parking should
be provided and intrinsic maneuvering such as for trucks and for drive-through facilities should
be contained entirely on site.
8. Landscaping should be evenly divided over the site and be visually attractive regardless of the
season. In addition to its aesthetic attributes, landscaping should be available to screen parking
and storage areas and to shade parking lots.
9. The project should demonstrate concern for solar orientation and other forms of energy
conservation. Deep eaves, overhangs, canopies, and other features that provide shelter and shade
should be apparent in the design.
10. The project should be harmonious with the topography of the site in order to minimize the
requirement for grading and the associated disruption of the City’s scenic amenities.
PAGE – 3.29 LAKE ELSINORE GENERAL PLAN
11. The size and scale of signs should be harmonious with the overall design concept of the project
and materials and colors should reflect those used for the principal structures. Signs should
enhance, not dominate or distract from the appearance of the project.
Design Review Findings:
1. The project, as approved, will comply with the goals and objectives of the General Plan and the
zoning district in which the project is located.
2. The project complies with the design directives contained in LEMC 17.415.050(F) and all other
applicable provisions of the municipal code.
3. Conditions and safeguards, as may be deemed appropriate, pursuant to LEMC 17.415.050(E),
including guarantees and evidence of compliance with conditions, have been incorporated into
the approval of the subject project to ensure development of the property in accordance with the
objectives of this section and the planning district in which the site is located.
The design review process is not a constraint to residential development in Lake Elsinore. By and large the
City has not recommended denial of residential projects in general and less so during design review. The
design review process also does not negatively impact residential development as the City’s already short
processing time and the criteria for design review is generally objective. In compliance with SB 330, the
City will adopt objective design standards to ensure that the City can provide local guidance on design and
clearly articulate objective design standards for by-right projects as allowed by state law (Program 12).
Part of the objective design standards creation process will include assessing how the standards can be
used to encourage a variety of housing types and limit the size of residential units on multi-family zoned
properties to encourage units that are affordable by design.
Subdivisions
Before a developer or property owner makes any division of land or real property, a tentative map is
required pursuant to the Subdivision Map Act. Once an application is deemed complete by the City, the
Planning Commission will act on the tentative map and either recommend approval, conditional approval,
or denial. At a subsequent regular meeting, after receipt of the Planning Commission recommendation,
the City Council will act on the tentative map and either approve, conditionally approve, or deny it. Minor
land divisions (4 or less parcels) are processed in the same manner.
Design Review Process
The City’s processing for land use entitlement approval includes review by the Design Review Committee
(DRC). Part of the DRC review process includes ensuring projects are consistent with the requirements of
LEMC Section 17.184 - Design Review. Applicants may review this section of the code to understand and
be consistent with the guidelines the DRC will be using to assess the project. A Design Review entitlement
application requires a public hearing and adoption of specific findings.
The approval process for smaller and larger residential projects includes submitting a development
application and fees to the City and completing the Design Review process (see Figure 3.1). Smaller
projects may receive approval at a public meeting scheduled after the project has completed the Design
Review Committee process. Larger projects are first reviewed by the Planning Commission at a public
PAGE – 3.30 LAKE ELSINORE GENERAL PLAN
meeting and then forwarded to the City Council with a recommendation of approval or denial, unless the
project is within an approved specific plan, which may result in a shorter approval process.
Land Use Entitlement Process
The City’s average development processing times are typical of those for surrounding jurisdictions. They
allow for State-mandated review periods for environmental documents as well as for legally advertised
and noticed public hearings. In addition, the City of Lake Elsinore, like surrounding jurisdictions, is required
to adhere to the development review timeframes mandated by the State Permit Streamlining Act.
Program 11 is included in the Housing Plan and directs the City to review, and if necessary, revise local
review procedures to facilitate a streamlined review process.
SB 35 Approval Process
SB 35 requires cities and counties to streamline review and approval of eligible affordable housing projects
by providing a ministerial approval process, exempting such projects from environmental review under
the California Environmental Quality Act (CEQA). When the State determines that jurisdictions have
insufficient progress toward their lower-income RHNA (Very-Low and Low Income), these jurisdictions are
subject to the streamlined ministerial approval process (SB 35 [Chapter 366, Statutes of 2017]
streamlining) for proposed developments with at least 50 percent affordability. If the jurisdiction also has
insufficient progress toward the above-moderate income RHNA, then that jurisdiction is subject to the
more inclusive streamlining for developments with at least 10 percent affordability.
PAGE – 3.31 LAKE ELSINORE GENERAL PLAN
As of July 2020, Lake Elsinore was determined to have made insufficient progress toward the above-
moderate income RHNA and/or not submitted the latest annual progress report (APR for 2019) and
therefore is subject to the streamlined ministerial approval process (SB 35 (Chapter 366, Statutes of 2017)
streamlining) for proposed developments with at least 10% affordability.3
To accommodate any future SB 35 applications or inquiries, Program 11 calls for the City to create and
make available to interested parties an informational packet that explains the SB 35 streamlining
provisions in Lake Elsinore and provides SB 35 eligibility information. Program 12 is included and specifies
that the City will adopt objective design standards to provide local guidance on design and standards for
by-right projects, per State law.
Housing for Disabled Persons
California law requires jurisdictions to analyze potential and actual constraints on housing for persons
with disabilities, demonstrate efforts to remove governmental constraints, and include programs to
accommodate housing designed for people with disabilities. Review of the LEMC, permitting procedures,
development standards, and building codes revealed the following findings:
• The City has no special zoning or land use restrictions that regulate the siting of housing for
persons with disabilities.
• In accordance with California law, Lake Elsinore permits State-licensed residential care facilities
serving six or fewer persons in all residential zoning districts by right, provided such uses are
housed within structures that comply with the development standards required of all structures
within the zoning district.
• Residential care facilities for seven or more clients are not addressed in the municipal code. If a
proposal for such a facility were proposed, the Community Development Director would make a
determination as to whether such a use was permitted or if it requires a conditional use permit.
Program 25 in the Housing Plan includes an action item to address residential care facilities for 7
or more persons and to ensure that the City’s definition of residential care facilities is consistent
with State law.
• Rest homes and similar congregate care facilities are permitted with a conditional use permit in
the R-2 and R-3 zones. Conditional use permits to accommodate housing for disabled persons are
no more stringent than those for other conditional uses. The City enforces Title 24 of the
California Building Standards Code that addresses access and adaptability of buildings to
accommodate persons with disabilities. The City also requires compliance with the 1988
amendments to the Fair Housing Act, which requires a minimum percentage of dwelling units in
new multi-family housing projects to be fully accessible to the physically disabled. No additional
accessibility standards above State and federal law are required.
• Inclusion of an overly restrictive definition of “family” in the LEMC may have the potential of
discriminating against group homes or other housing for persons with disabilities on the basis of
familial status. The LEMC defines family as “one or more persons immediately related by blood,
3 https://www.hcd.ca.gov/community-development/housing-element/docs/SB35_StatewideDeterminationSummary.pdf
PAGE – 3.32 LAKE ELSINORE GENERAL PLAN
marriage or adoption living together as a single housekeeping unit in a dwelling unit together with
any domestic employees. A group of not more than six unrelated persons living together as a
single housekeeping unit with their domestic employees shall also be considered a family.”
The City has determined that the LEMC definition of “family” is consistent with applicable laws
and fair housing policies. However, the City also acknowledges that this definition of “family” may
cause the misperception by the public that development can be restricted to blood-related
families. Program 25 calls the City to revisit the definition of “family” as well as establish a
definition for “household” that is more flexible and includes a variety of household types,
consistent with State and federal laws.
• For developers and providers of housing for disabled persons who are often confronted with siting
or use restrictions, reasonable accommodation provides a means of requesting from the local
government flexibility in the application of land use and zoning regulations or, in some instances,
even a waiver of certain restrictions or requirements because it is necessary to achieve equal
access to housing. Cities and counties are required to consider requests for accommodations
related to housing for people with disabilities and provide the accommodation when it is
determined to be “reasonable” based on fair housing laws and case law interpreting the statutes.
The City actively provides reasonable accommodation for persons with disabilities seeking fair
access to housing in the application of City zoning and building regulations. In June 2019, the City
adopted an amendment to the LEMC (Title 17.415.150 Reasonable Accommodation) formalizing
a reasonable accommodation process. Once an application for a reasonable accommodation is
filed (no noticing or public hearing are required for a reasonable accommodation request). the
Community Development Director must make a written determination within 45 days of the
application being deemed complete and either approve, modify, or deny a request for reasonable
accommodation. Reasonable accommodation decisions take into consideration of the following
factors:
1. Whether the housing, which is the subject of the request, will be used by an individual
defined as disabled under the California Fair Employment and Housing Act, the Federal Fair
Housing Act, and the Americans with Disabilities Act (“Acts”);
2. Whether the request for reasonable accommodation is necessary to make specific housing
available to an individual with a disability under the Acts;
3. Whether the requested reasonable accommodation would impose an undue financial or
administrative burden on the City;
4. Whether the requested reasonable accommodation would require a fundamental
alteration of a City program or law, including but not limited to land use and zoning;
5. Whether the requested reasonable accommodation will not, under the specific facts of the
case, result in a direct threat to the health or safety of other individuals or substantial
physical damage to the property of others; and
6. Whether there are alternative reasonable accommodations that provide an equivalent level
of benefit to the applicant.
PAGE – 3.33 LAKE ELSINORE GENERAL PLAN
Affirmatively Furthering Fair Housing
Signed into law in 2018, AB 686 requires California cities and counties to administer programs and
activities relating to housing and community development in a manner to affirmatively further fair
housing and to not take any action that is materially inconsistent with this obligation. “Affirmatively
furthering fair housing” means taking meaningful actions, in addition to combating discrimination, that
overcome patterns of segregation and foster
inclusive communities free from barriers that
restrict access to opportunity based on protected
characteristics. Specifically, affirmatively furthering
fair housing means taking meaningful actions that,
taken together, address significant disparities in
housing needs and in access to opportunity,
replacing segregated living patterns with truly
integrated and balanced living patterns,
transforming racially and ethnically concentrated
areas of poverty into areas of opportunity, and
fostering and maintaining compliance with civil
rights and fair housing laws. The law also requires a fair housing analysis to be included in the 2021-2029
Housing Element.
The primary data source for the AFFH analysis is the County of Riverside 2019-2024 Analysis of
Impediments to Fair Housing Choice (AI) and the State of California Department of Housing and
Community Development (HCD) AFFH Data Viewer.
Fair Housing Enforcement and Capacity
The County of Riverside 2019-2024 Analysis of Impediments to Fair Housing Choice (AI) serves as the fair
housing planning document for the County of Riverside Public Housing Authority (PHA) programs that
address the entire County, and the Community Development Block Grant (CDBG), HOME Investment
Partnerships (HOME), Emergency Solutions Grant (ESG) programs that address the unincorporated areas
of the County, the City of Lake Elsinore, and the following other cooperating cities: Banning, Beaumont,
Blythe, Coachella, Canyon Lake, Desert Hot Springs, Eastvale, Indian Wells, La Quinta, Murrieta, Norco,
San Jacinto, and Wildomar. The purpose of this report is to identify impediments to fair and equal housing
opportunities in Riverside County. The AI provides an overview of the laws, regulations, conditions, or
other possible obstacles that may affect access to housing and other services in Riverside County.
Fair housing is a condition in which individuals of similar income levels in the same housing market have
like ranges of choice available to them regardless of race, color, national origin, religion, sex, disability,
familial status, ancestry, age, marital status, gender, gender identity, gender expression, genetic
information, sexual orientation, source of income, or any other arbitrary factor. The AI examines local
housing conditions, economics, policies, and practices to ensure that housing choices and opportunities
for all residents are available in an environment free from discrimination. The AI assembles fair housing
“AFFIRMATIVELY FURTHERING FAIR
HOUSING” MEANS TAKING MEANINGFUL
ACTIONS THAT OVERCOME PATTERNS OF
SEGREGATION AND FOSTER INCLUSIVE
COMMUNITIES FREE FROM BARRIERS THAT
RESTRICT ACCESS TO OPPORTUNITY BASED
ON PROTECTED CHARACTERISTICS.
PAGE – 3.34 LAKE ELSINORE GENERAL PLAN
information, identifies existing impediments that limit housing choice, and proposes actions to mitigate
those impediments.
The County of Riverside has contracted with the Fair Housing Council of Riverside County, Inc. (FHCRC), a
non-profit organization that fights to protect the housing rights of all individuals. Since 1986, FHCRC’s
mission is “to provide comprehensive services which affirmatively address and promote fair housing (anti-
discrimination) rights and further other housing opportunities for all persons.” FHCRC provides services
focused on eliminating housing discrimination, general housing assistance, and education and outreach
activities to all residents in the Riverside County. The comprehensive services offered throughout
Riverside County include:
• Fair Housing (Anti-Discrimination) Services;
• Landlord-Tenant Services;
• Housing Counseling Services; and
• Training for Real Estate Professionals.
Lake Elsinore is an active partner with the FHCRC. FHCRC provides a comprehensive education and
outreach program and services and has been actively involved in outreach activities throughout Riverside
County, including the provision of informational materials, brochures, newsletters, and referrals relating
to fair housing. FHCRC also provides workshops, presentations, and seminars to community organizations,
including presentations at meetings of groups such as neighborhood organizations, advocacy
organizations, chambers of commerce, government officials, real estate trade groups, and housing
organizations.
FHCRC investigates allegations of discrimination based on a person’s status as a member of one of the
State or federal protected categories. From 2013 to 2018, FHCRC assisted County residents with fair
housing discrimination complaints, addressing 3,108 complaints in total, with 95% of those from in-place
tenants, 3% from landlords or managers, and the balance from other types of complainants. Consistent
with State and national trends, the leading bases of complaints included physical disability (51%), mental
disability (12%), race (10%), familial status (8%), national origin (7%), and sex (3%). Taken together,
complaints based on disability status accounted for 63% of all cases in Riverside County. These data are
consistent with HUD data that show that in 2017, 59.4% of all discrimination complaints made to HUD
originating from the County of Riverside were based on the protected category of disability. In addition,
FHCRC data show that more than 95% of fair housing discrimination complaints were made by low- and
moderate-income households during the five-year study period.
Fair housing inquiries data from the U.S. Department of Housing and Urban Development (HUD) indicates
that from 2013 to 2021 there were 19 inquiries originating from residents in Lake Elsinore or 0.30 inquiries
per thousand residents. Compared with surrounding jurisdictions, the number of inquiries per thousand
residents was similar to the level of inquiries seen in the cities of Riverside, Temecula, and Perris but
slightly higher than the cities of Menifee or Murrieta.
PAGE – 3.35 LAKE ELSINORE GENERAL PLAN
FHRC data for Lake Elsinore (2021) indicates that there were 191 inquiries in the last five years, more than
half were from White residents and close to 63 percent of inquiries were related to fair housing issues
based on physical disability.
Table 3.11: Fair Housing Inquiries (2016-2021)
Race/Ethnicity Number
Black 55 (28.8%)
Hispanic 48 (25.1%)
White 87 (45.5%)
Other 1 (0.5%)
Total 191 (100%)
Type of Inquiry/Complaint Number of Inquiries
Age 6 (3.1%)
Color 5 (2.6%)
Familial Status 15 (7.9%)
Mental Disability 12 (6.3%)
National Origin 4 (2.1%)
Physical Disability 120 (62.8%)
Race 21 (11.0%)
Sex 8(4.2%)
Total 191 (100%)
Source: Fair Housing Council of Riverside County, 2021.
Segregation and Opportunity Patterns and Trends
The County of Riverside AI uses data from various indices to identify segregation and disparities in access
to opportunity These indices are:
• Dissimilarity Index;
• Low Poverty Index;
• School Proficiency Index;
• Jobs Proximity Index;
• Labor Market Engagement Index;
• Low Transportation Cost Index;
• Transit Trips Index; and
• Environmental Health Index.
Analysis of these indices shows that except for their ability to access low transportation costs and
proximity to jobs, County residents enjoy relative access to opportunity at levels with or slightly higher
than residents of the region generally. Higher index scores nearly across the board indicate greater access
for Riverside residents to opportunity in the important areas of education and employment, and lower
exposure to poverty. Further, these scores are consistent across various protected groups, meaning that
PAGE – 3.36 LAKE ELSINORE GENERAL PLAN
members of most racial and ethnic groups enjoy a better standard of living by various measures than their
counterparts within the greater statistical region.
However, an examination of overall trends reveals a different picture. While the County saw racial
segregation in the Black community decline 13 percent relative to the 2010 U.S. Census, current estimates
show the County trending toward more, not less, segregation within the Black community and for all
affected ethnic groups. In every category, the County is trending in the direction of more, not less,
segregation at a rate that is in keeping with than that of the region overall. With respect to Non-Whites,
the level of segregation from Whites, as measured by the Dissimilarity Index, has increased almost 23
percent in the County since 1990. This is slightly less than the regional increase of 25 percent during the
same period. Except for the Black community, in which segregation has ticked up in recent years, but is
still statistically declining, this upward trend holds true for the other ethnic/racial groups within the
County, as well as for their regional counterparts. Hispanics have become increasingly segregated by a
factor of 24 percent within the County and the region. Asians and Pacific Islanders are not experiencing
significant increases locally (17 percent versus 30 percent in the region), but any increase should be
considered of concern.
The following information discusses the levels of segregation and integration for race and ethnicity,
income, familial status, persons with disabilities.
Race and Ethnicity
The ethnic and racial composition of a region is useful in analyzing housing demand and any
related fair housing concerns as it tends to demonstrate a relationship with other characteristics
such as household size, locational preferences, and mobility. White non-Hispanic and Hispanic residents
make up most of the City of Lake Elsinore population. Since 2010, the City has become more ethnically
diverse with an increase in the proportion of Hispanic and Black residents. Compared with the County of
Riverside, the City has a higher percentage of Hispanic residents and a lower percentage of white, non-
Hispanic residents. In Lake Elsinore, more than half (53 percent) of residents identify as Hispanic, while 49
percent of the County population does the same. Overall, 69 percent of the City’s population is non-White.
Figure 3.1 shows the distribution of non-white residents in Lake Elsinore. Most of the City block groups
show a population that is between 60 and 80 percent non-white. Overall, concentrations of non-white
population in Lake Elsinore are minimal. Two small areas show concentrations higher than this. One is
located west of Riverside Drive between Joy and Lincoln Streets, and another is located west of I-15, east
of Main Street and west of Franklin Street. The second area includes the northeast portion of the Downton
Elsinore Specific Plan area. Areas of the City in the west and east edges have lower concentrations of non-
white residents. Compared with nearby jurisdictions, the City has less concentrations of non-white
residents than the cities of Perris, Corona and Riverside but higher concentrations than the cities of
Wildomar, Murrieta, and Temecula.
To assist in this analysis of integration and segregation, the Department of Housing and Community
Development (HCD) and the California Tax Credit Allocation Committee (CTCAC) created Opportunity
Maps to identify resources levels across the state. These opportunity maps are made from composite
scores of three different domains (economic, environmental, and education) made up of a set of
indicators. The opportunity maps include a measure or “filter” to identify areas with poverty and racial
PAGE – 3.37 LAKE ELSINORE GENERAL PLAN
segregation (Census tracts with at least 30 percent of population under federal poverty line and a location
quotient higher than 1.25 for Blacks, Hispanics, Asians, or all people of color in comparison to the County).
According to the California Fair Housing Task Force’s 2021 opportunity maps, there are no census tracts
or areas of high racial segregation and poverty in Lake Elsinore. Regionally, areas with high segregation
and poverty are in northern Riverside County in the City of Riverside and Corona (HCD AFFH Data Viewer).
Nonetheless, racial segregation maps in the Riverside County 2017 AI reveal patterns of segregation and
concentrations including:
• High concentrations of White residents in the Northwest region of the County, especially along
the State Route 91 corridor, beginning near the intersection with State Route 71 in Corona, and
continuing through the Norco area and into the City of Riverside. Other concentrations of White
residents are found along the Interstate 15 corridor, through the communities of Lake Elsinore,
Wildomar, Murrieta, and Temecula. Still other concentrations of White residents are found
farther East, in Hemet, as well as in the Coachella Valley communities of Palm Springs, Cathedral
City, Rancho Mirage, Palm Desert, Indian Wells, and La Quinta.
• Concentrations of Hispanics in the extreme Northwest of the County in the communities of Mira
Loma, Glen Avon, and Rubidoux. Another heavily Hispanic area is found more inland, radiating
out from the Perris area, which also has concentrations of Black residents. Still another heavily
Hispanic area begins in Indio and stretches southeastward toward the Salton Sea.
Persons with Disabilities
In Lake Elsinore, 5,937 residents (nine percent) are living with a disability. Figure 3.2 shows the population
of persons with a disability by census tract (2015-2019). At a regional level, Lake Elsinore is similar to the
rest of the county in that all of the census tracts have less than 20 percent of their population living with
a disability. There are no concentrations of persons with a disability in Lake Elsinore as areas with a lower
proportion of disabled persons coincides with areas of the City that have large undeveloped (vacant)
areas.
Factors such as affordability and design significantly limit the supply of housing available to households of
persons with disabilities. The most obvious housing need for persons with disabilities is housing that is
adapted to their needs. The City works with applicants who need special accommodations in their homes
to ensure that application of building code requirements does not create a constraint. The City actively
provides reasonable accommodation for persons with disabilities seeking fair access to housing in the
application of City zoning and building regulations. In June 2019 the City adopted an amendment to the
LEMC (Title 17.415.150 Reasonable Accommodation) formalizing a reasonable accommodation process.
The City will encourage and facilitate housing opportunities to meet the special housing needs of special
needs residents— including disabled and developmentally disabled persons—by giving priority for
available funding to development projects that include a component for special needs (Program 14). The
City will also revise the definition for Residential Care Facilities and clarify siting for residential care
facilities for 7 or more persons and ensure that approval procedures do not constraint development of
housing for persons with disabilities (Program 25).
PAGE – 3.38 LAKE ELSINORE GENERAL PLAN
Familial Status
Using Census tract data from 2015-2019, Figure 3.3 shows the percent of children in married couple
households and Figure3.4 shows the percent of children in Female headed (no spouse) households. The
composition and distribution of family households in Lake Elsinore are generally like that of the region, in
which more than 60 percent of children in each census tract live in a household with a married couple and
less than 40 percent live in a female headed household (no spouse). Single-parent households require
special consideration and assistance because of the greater need for day care, health care, and other
services. In particular, female-headed households with children tend to have lower incomes and a greater
need for affordable housing and accessible daycare and other supportive services. Figures 3.3 and 3.4
show that within Lake Elsinore, there are higher levels of children living in female-headed households (no
spouse) in the areas north of the Lake (west of I-15).
Income Level
According to the U.S. Census 2019 five-year estimates, the median household income for Lake Elsinore
was $71,476, or close to seven percent higher than the County of Riverside median household income of
$67,005. Using 2015-2019 Census data, Figure 3.5 shows median household income by Census block group
and Figure 3.6 shows poverty status by Census tract. In Lake Elsinore the highest median household
incomes are located outside the areas near the Lake (generally east of I-15 and west of Riverside Drive).
This data is consistent with poverty status data which show that the area surrounding the Lake has a
higher level of residents living in poverty (20 to 30 percent) compared to the surrounding areas (10 to 20
percent living in poverty). Compared with the surrounding areas, the City has higher level of residents
living in poverty compared to cities to the south (Murrieta, Temecula, Wildomar) but lower than cities to
the north and east (Perris, Hemet, Moreno Valley, Riverside).
Identifying low or moderate income (LMI) geographic areas and individuals is important to overcome
patterns of segregation. HUD defines a LMI area as a Census tract or block group where over 51 percent
of the population is LMI (based on HUD income definition of up to 80 percent of the AMI). Figure 3.5
shows the Lower and Moderate Income (LMI) areas in Lake Elsinore by Census block group. At the County
level, the latest iteration of this data from 2011-2015 American Community Survey (ACS) shows 914,489
low- and moderate-income residents in Riverside County against a population of 2,264,280. This yields a
low- and moderate-income percentage of 40.39 percent countywide. In other words, 40.39 percent of
people living in Riverside County are members of families earning less than 80 percent of Area Median
Income. Though significant, this percentage compares favorably to the broader geographical region.
Neighboring Los Angeles County’s percentage was 56.03; Orange County, 49.26; San Bernardino, 43.79;
and San Diego, 47.70). In western Riverside County a concentration of LMI areas can be seen in and around
the City of Perris and in the cities of Corona, Riverside, and Moreno Valley. Lake Elsinore has a low- and
moderate-income percentage of 39.7 percent, lower than the countywide percentage. Within the City,
LMI areas are located in most areas of the City west of Interstate 15 and in the northernmost area of the
City (which is undeveloped, so it is most likely picking up demographic data from outside the City in
unincorporated County pockets
In Lake Elsinore, local and regional data for segregation and integration data by income show that:
• The highest median household incomes are located outside the areas around the Lake (generally
north/east of I-15 and west of Riverside Drive).
PAGE – 3.39 LAKE ELSINORE GENERAL PLAN
• Lake Elsinore has a low- and moderate-income percentage of 39.7 percent, lower than the
countywide percentage as well as surrounding counties.
• A concentration of lower income households exists in the areas of the City west of I-15.
• There is a higher proportion of residents living in poverty in the areas surrounding the Lake (west
of I-15). These areas also have a higher proportion of renters, rising rents, and households
experiencing housing cost burden.
• Compared with the surrounding areas, the City has higher level of residents living in poverty.
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Racially/Ethnically Concentrated Areas of Poverty (R/ECAP)
The U.S. Department of Housing and Urban Development (HUD) defines a Racially or Ethnically
Concentrated Area of Poverty (R/ECAP) as a census tract where: (1) the non-white population comprises
50 percent or more of the total population and (2), the percentage of individuals living in households with
incomes below the poverty rate is either (a) 40 percent or above or (b) three times the average poverty
rate for the metropolitan area, whichever is lower.
In Riverside County, there are R/ECAPs scattered in small sections of Riverside, Moreno Valley, and Hemet.
A large R/ECAP is in an unincorporated pocket of land west of Perris just north of the Lake Elsinore. Part
of this R/ECAP is located within Lake Elsinore in the northernmost area of the City (Figure 3.7). The area
within the City is undeveloped, and the R/ECAP is most likely picking up demographic data from outside
the City in unincorporated County pockets. While there are no R/ECAPs in other parts of the City, Figure
3.1 shows that most of the City’s block groups show a population that is between 60 and 80 percent non-
white. Overall, concentrations of non-white population in Lake Elsinore are minimal. Two small areas show
concentrations higher than this. One is located west of Riverside Drive between Joy and Lincoln Streets,
and another is located west of I-15, east of Main Street and west of Franklin Street. These areas coincide
with LMI areas, lower median income areas, and areas with a higher proportion of residents living in
poverty (Figures 3.5 and 3.6).
Racially/Ethnically Concentrated Areas of Affluence
Racially or Ethnically Concentrated Areas of Affluence (RCAAs), they are generally understood to be
neighborhoods in which there are both high concentrations of non-Hispanic White households and high
household income rates. Comparing Lake Elsinore relative to the surrounding area, the city has a lower
presence of high-income households compared with cities to the north and south. Even though 69 percent
of the City’s population is non-White, the City also has less concentrations of areas with a high proportion
of Non-White residents compared with cities located to the north of Lake Elsinore. As was discussed
previously, Hispanics are the predominant racial/ethnic group in Lake Elsinore (53 percent).
Additionally, the median household income in most census block groups is equal to or less than the 2020
state median income (see Figure 3.5). In Lake Elsinore the areas with the highest median household
incomes are outside the neighborhoods near the Lake (generally east of I-15 and west of Riverside Drive).
However, there are only a few areas of the City above the state median household income. Two areas
located at the west and east ends of the City have a higher proportion of White residents and higher
incomes. These areas coincide with the Alberhill Ranch and Canyon Hills Specific Plan areas. These areas
of the City have developed more recently compared with the areas in and around Downtown (near the
Lake). The areas are characterized by newer subdivisions with a predominately single-family character.
Nonetheless, there is ample opportunity for new development in this area and as such the Sites Inventory
in Chapter 4 shows that there is capacity for development of single- and multi-family housing. The City
will continue to work towards development of these Specific Plan areas and will coordinate with
developers/owners to encourage development of affordable housing (Program 20).
PAGE – 3.47 LAKE ELSINORE GENERAL PLAN
As mentioned earlier, since 2010, the City has become more ethnically diverse with an increase in the
proportion of Hispanic and Black residents. Compared with the County of Riverside, the City has a higher
percentage of Hispanic residents and a lower percentage of white, non-Hispanic residents. As a result,
Lake Elsinore has less concentrations of White residents. A regional comparison shows that Lake Elsinore
has fewer areas with predominantly White residents compared with the surrounding area and the County.
There is a concentration of Census tracts with predominately White residents in the central part of the
County (between the City of Hemet and the I-10 near Palm Desert), south of the City (Temecula and
Murrieta) and in unincorporated parts of the County north of the City. These areas also have median
incomes higher than the State median Income for 2020.
Opportunity Access
The Riverside County 2019 Analysis of Impediments found that except for their ability to access a low
transportation costs and proximity to jobs, residents of the County of Riverside enjoy relative access to
opportunity at levels equal to or slightly higher than residents of the region generally. Data indicates
greater access for Riverside County residents to opportunity in the important areas of education and
employment, and lower exposure to poverty. Further, these scores are consistent across various
protected groups, meaning that members of most racial and ethnic groups enjoy a better standard of
living by various measures than their counterparts within the greater statistical region.
HCD and the California Tax Credit Allocation Committee (TCAC) coordinated efforts to produce
opportunity maps that evaluate specific economic, environmental, and educational characteristics that
have been shown by research to support positive economic, educational, and health outcomes for low-
income families. The TCAC/HCD Opportunity Maps are intended to display the areas that offer low-income
children and adults the best chance at economic advancement, high educational attainment, and good
physical and mental health. The primary function of TCAC is to oversee the Low-Income Housing Tax Credit
(LIHTC) Program, which provides funding to developers of affordable rental housing. The opportunity
maps play a critical role in shaping the future distribution of affordable housing in areas with the highest
opportunity.
Shown on Figure 3.8, the highest resources areas are generally located in the western and eastern ends
of the City. Low and moderate resources areas in Lake Elsinore are generally located west of I-15 where
the most developed areas of the City are located. TCAC and HCD define these as areas where there are
fewer opportunities to access jobs, education, and lower home values in this tract in addition to other
economic, environmental, and educational indicators. The designation of Low Resource in the city means
there is a need for the City to prioritize its resources towards improving opportunities for current and
future residents. The City has been proactive in prioritizing resources for these lower resource areas. The
City successfully pursued a grant from the Environmental Protection Agency's (EPA) Building Blocks for
Sustainable Communities Program to fund a comprehensive development plan to spur development in
the Downtown area by analyzing existing assets and potential investments needed to increase infill
residential development. The City has also purchased vacant lots for the future development of affordable
housing, pedestrian pathways and linkages, and creation of a new civic center and other community
amenities such as a public library or community center.
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The County of Riverside AI shows various opportunity index scores that HUD has calculated for
as a measure of relative access to opportunity in such important facets of life as education, employment,
and transportation. Generally speaking, these scores indicate that members of most racial and ethnic
groups within Riverside County enjoy equal or superior access to high performing schools, good jobs, good
public transit, and relatively low exposure to poverty. The discussion below addresses opportunity access
in Lake Elsinore education, environmental, transportation, and economic scores.
Education
Information on schools in the Lake Elsinore Unified School District (from publicschoolreview.com) show
that the district's average testing ranking is 4/10, which is in the bottom 50 percent of public schools in
California and is ranked within the bottom 50 percent of all 989 school districts in California (based on
combined math and reading proficiency testing data) for the 2018-2019 school year. School ranking in the
City varied by location. A comparison of schools in the Lake Elsinore Unified School District on
publicschoolreview.com show that the lowest scoring K-12 schools (rank of 3/10 or less) are all located in
areas of the City west of I-15. The schools include Elsinore Elementary School, Lakeland Village, Machado
Elementary School, Elsinore Middle School, and Withrow Elementary School. These schools are in areas
classified as Moderate or Low Resources areas (according to TCAC data shown on Figure 3.8). In contrast,
two of the top three scoring schools (rank of 7/10 or more) are in High Resources areas of the City east of
I-15. These schools include Tuscany Hills and Cottonwood Canyon Elementary Schools. School
achievement can vary within the same areas. For example, Rice Canyon Elementary School scored in the
top three and is west of the I-15 west in a higher opportunity area (according to TCAC data shown on
Figure 3.8) as is Terra Cotta Middle School which scored in the bottom five schools. TCAC/HCD
Opportunity Maps Education Domain data shows that there are education opportunity disparities within
the City and compared to the local region. The data combines scores for math and reading proficiency
with high school graduation rates and student poverty. In Lake Elsinore, the areas west of I-15 have lower
scores and thus less positive education outcomes compared with areas east of I-15. Education outcomes
improve gradually toward the eastern areas of the City. The differences in school quality between the
areas of the City west and east of I-15 mirror other demographic variation such as poverty and income
with the higher scoring schools being in areas of the City with higher incomes and less residents living in
poverty relative the lower scoring school areas, and vice versa. In terms of race and ethnicity, the City is
very diverse and that racial and ethnic diversity is relatively consistent throughout the city. There are
however, some residential areas of the City with a lower Non-White population (such as Canyon Hills) that
are served by some higher scoring schools.
Compared with the local region (western Riverside County), the City has TCAC/HCD Opportunity Maps
Education Domain scores similar to those of Perris, Moreno Valley, Jurupa Valley and westernmost parts
of the City of Riverside. Areas of the County in and around the Cities of Corona, Wildomar, Murrieta, and
Temecula shows higher scores and this more positive education outcomes. In general, the areas with
more positive education outcomes also had higher overall opportunity index scores, and vice versa. In
most parts of Western Riverside County, areas with less positive education outcomes coincided with areas
with higher proportion of Non-White residents, lower incomes, and a higher proportion of residents living
in poverty. California Department of Education data shows that , 65.4 percent of students qualified for
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free/reduced-price meals within the Lake Elsinore Unified School District. This proportion is the same for
the County of Riverside but higher than the State of California (58.9 percent). The Lake Elsinore Unified
School District has a lower proportion of English-learner students, 10.4 percent compared with 16.5
percent for all school districts in Riverside County, and 17.7 percent for all districts in California. The
Education Data Partnership reports an ethnic diversity score of 38. The Ethnic Diversity Index reflects how
evenly distributed these students are among the race/ethnicity categories. The more evenly distributed
the student body, the higher the number. A school where all of the students are the same ethnicity would
have an index of 0. The index is out of 100; the highest score any school currently receives in the country
is 76. Combined, all school districts in Riverside County have an ethnic diversity score of 37 and across the
State, the diversity index of 47.
The Lake Elsinore School District allows intra-district transfers for any student seeking to attend an LEUSD
school other than his or her school of attendance. Intra-district transfers will be permitted only as space
permits and when requests exceed spaces available, a random drawing is held for award of intra-district
transfer to the desired site(s). Transfer opportunities are limited by capacity. Students who reside in the
school boundaries will not be displaced due to intra-district transfer requests; therefore, students on
intra-district transfers could be displaced in the event of excessive enrollment.
Environmental
The California Office of Environmental Health Hazard Assessment (OEHHA) developed a screening
methodology to help identify California communities disproportionately burdened by multiple sources of
pollution called the California Communities Environmental Health Screening Tool (CalEnviro Screen). In
addition to environmental factors (pollutant exposure, groundwater threats, toxic sites, and hazardous
materials exposure) and sensitive receptors (seniors, children, persons with asthma, and low birth weight
infants), CalEnviro Screen also takes into consideration socioeconomic factors. These factors include
educational attainment, linguistic isolation, poverty, and unemployment. Research has shown a
heightened vulnerability of people of certain ethnicities and lower socioeconomic status to environmental
pollutants. Figure 3.12 shows CalEnviro Screen results for Lake Elsinore. The map shows that in Lake
Elsinore, the areas west of I-15 and in the northern part of the City (north of SR-74) have higher scores.
Areas with a high score experience a higher pollution burden and vulnerability than census tracts with low
scores. Figure 3.12 also shows that two Census tracts located north of the Lake (west of I-15) and to the
northern end of the City and are identified as Disadvantaged Communities (DAC) consistent with SB 535.
These DACs are defined as the top 25 percent scoring areas from CalEnviroScreen. Two additional Census
tracts located in the upper northeast corner of the City north of SR-74 and north of Greenwald Avenue
that are identified as a DACs. While parts of these Census tracts are within City limits, these areas of Lake
Elsinore are largely undeveloped, and the DAC designation is most likely due to communities located
outside City limits. Compared to the County, Lake Elsinore had no tracts scoring over 80 percent. In areas
north of the City such as Corona, Mira Loma, Riverside, Moreno Valley and Perris there are concentration
of areas with CalEnviro Screen scores over 80 percent. In western Riverside County, the lowest scores are
concentrated in parts of Lake Elsinore and to the south to the cities of Wildomar, Murrieta, and Temecula.
In Lake Elsinore, areas with higher scores (higher pollution burden and vulnerability) are in areas west of
I-15. These areas coincide with lower resources, lower income, higher poverty areas. In terms of race and
ethnicity, the City is very diverse and there are very few variations of race and ethnicity across the City. In
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terms of race and ethnicity, the City is very diverse and that racial and ethnic diversity is relatively
consistent throughout the city. There are, however, smaller pockets of the City with a higher Non-White
population (near the Lake) that have higher pollution burdens. Although the City has a relatively low
proportion of residents with a disability, one larger area with a slightly higher concentration of disabled
persons (10-20 percent) is in an area deemed to have a higher pollution burden.
The City is in the process of creating a new General Plan Environmental Justice Element. The Element
acknowledges that the burden of pollution is not equally shared. Minority and low-income populations
often face a greater exposure to pollution and may also experience a greater response to pollution. The
Element includes goals and policies address pollution exposure particularly for disadvantaged populations
which have traditionally borne a greater pollution burden than other communities. Goal 18 and its
associated 14 policies in the draft Environmental Justice Element aim to minimize the exposure of
residents to pollution in the environment through sound planning and public decision-making. Strategies
include reducing vehicle miles traveled (VMT) to reduce pollutant emissions, new specific plans or existing
specific plans that includes a substantial revision that are within “disadvantaged communities should
address Environmental Justice goals and policies. This is an important policy given that a significant
amount of future housing in the City will be developed within Specific Plan areas. Other policies address
practices that impact access to environmentally healthy neighborhoods such as:
• The involvement of the public in decisions that affect their environment and quality of life
• Increased mobility options will provide critical links and opportunities for active living
• Access to healthy food and a healthy home environment
• Public improvements, services and community amenities that benefit disadvantaged
communities.
Transportation
The County of Riverside AI states that Riverside County residents in urban and suburban areas generally
enjoy superior access to transportation infrastructure. The County is also traversed by numerous major
freeways within its boundaries (including Interstate 15 and State Route 74 which bisect the City of Lake
Elsinore). Proximity to I-15 enables easy access to northern parts of Riverside County and San Bernardino
County and west into Los Angeles County and south to San Diego County.
The AI also states that the major population centers in the County appear to be well-served by public
transit. The City scored 2.1 in the AllTransit Performance Score (Center for Neighborhood Technology
2019, AllTransit, alltransit.cnt.org ) indicating that the City had very low combination of trips per week and
number of jobs accessible enabling negligible number of people to take transit to work. The City’s score
was lower than the County score of 3.3. AllTransit data also shows that in Lake Elsinore, 47.3 percent of
workers live within ½ mile of transit compared with 64.6 percent for the County.
The Riverside Transit Agency provides bus service to Lake Elsinore, with service primary concentrated
west of the I-15. Based on the available data, the areas of the City best served by transit coincide with
lower opportunity areas and higher need areas. As mentioned earlier, areas west I-15 are considered
lower resources areas, with a concentration of lower income households, a higher concentration of
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households with cost burden issues, residents living in poverty, and persons with a disability. In terms of
race and ethnicity, the City is very diverse and there are very few variations of race and ethnicity across
the City. Nonetheless, there are smaller pockets of the City with a higher Non-White population in the
areas best served by transit.
The HCD AFFH Data viewer provides additional information on job proximity, creating an index by Census
Block Group indicting areas that are most proximate to jobs. The higher the index value, the better the
access to employment opportunities for residents in a neighborhood (out of 100). Most areas of the City
rank in the two lowest categories (20 and below, and less than 20). In Lake Elsinore, areas furthest from
I-15 had the furthest proximity scores meaning they travelled . These areas coincide with higher resources
and higher income areas. The areas with a slightly higher proportion of disabled residents have better
access to job locations. These areas are also closer to I-15.
Employment/Economic
Local economic characteristics impact local housing needs, even though these characteristics may not be
directly related to fair housing. These economic characteristics include the types of jobs available within
the municipality, the way residents access jobs (e.g., auto, transit, etc.), the types of occupations held by
residents, and their household income. The County of Riverside AI shows that the County’s top ten
employers are primarily in the medical, education, and municipal sectors. While one major retail
company, Amazon, remains among the top ten County employers, it is surpassed by the United States
military, a major university, and a regional government units in terms of numbers of employees. Residents
who work within Lake Elsinore are primarily employed in educational services, health care and social
assistance, retail trade, and construction. This is consistent with the major employers in the City of Lake
Elsinore. Major employers include the Lake Elsinore Unified School District with 2,497 employees, M & M
Framing with 500 employees, Stater Bros. with 329 employees, and Lake Elsinore Hotel and Casino with
275 employees. Half of the top ten employers in Lake Elsinore are in the retail sector. Employment
characteristics are important as they have a direct relationship with income. In 2019 the median earnings
for civilian employed Lake Elsinore residents (age 16 years and over) over in the labor force was $34,933.
Jobs in industries that employ more than half of Lake Elsinore residents (educational services/health
care/social assistance, manufacturing, professional services, and construction) pay higher than the
median earnings while than those in the retail and arts industries, which employ a quarter of residents,
paid incomes lower than the City’s median earnings.
In terms of unemployment, October 2021 unemployment data from the State Employment Development
Department reported that Riverside County had an unemployment rate of 6.6 percent while the State of
California had an unemployment rate of 6.4 percent. While Lake Elsinore had a similar level of
unemployment (6.7 percent), among cities in western Riverside County it was higher than most cities
except for Moreno Valley (7.0 percent). Unemployment was slightly lower in Wildomar (5.9 percent),
Murrieta (5.2 percent), Temecula (4.8 percent), Corona (4.8 percent), Riverside (5.6 percent), and Jurupa
Valley (5.8 percent).
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Disproportionate Housing Need
Disproportionate housing need generally refers to a condition in which there are significant disparities in
certain groups of residents experiencing a category of housing need when compared to the total
population experiencing that category of housing need in the applicable geographic area. The
disproportionate housing need analysis looks at cost burden, overcrowding, and environmental justice.
Cost Burden (Overpayment)
State and federal programs define whether a household experiences a housing cost burden (or is
considered overpaying) as any household spending more than 30 percent of its gross annual income on
housing. When a household spends more than 30 percent of its income on housing costs, it has less
disposable income for other necessities such as health care or education. In the event of unexpected
circumstances such as loss of employment or health problems, lower-income households with a housing
cost burden are more likely to become homeless or double up with other households. Cost burden is
more prevalent in Lake Elsinore than it is countywide. Among the County of Riverside’s 718,350 total
households, 285,035, or 39.7 percent, are cost burdened (HUD Chas Data 2014-2018). This is significantly
higher for lower-income households (earning up to 80 percent of the County AMI), of which 72.4 percent
are cost burdened. In Lake Elsinore, 42.8 percent of all households are cost burdened while 78.8 percent
of lower income households (earning up to 80 percent of the County AMI) are cost burdened. Tenure is
tied to overpayment. For owner-occupied households, 34.9 percent are overpaying for housing, while
54.3 percent of renter-occupied households are overpaying for housing. Figures 3.9 and 3.10 shows
housing overpayment for homeowners and for renters. In general, the percent of owner households with
mortgages whose monthly owner costs are 30 percent or more of household income is between 40 and
60 percent and is consistent with the surrounding region. The areas in the southern portion of the City
running along the southern boundary of the City have a higher proportion of overpaying homeowners but
overall, the level of overpayment is consistent with the surrounding region. For renters, the percent of
renter households who pay more than 30 percent of their income on housing is also consistent with the
surrounding region and in fact is slightly better as the City has no areas where more than 80 percent of
renters overpay. Within the City there is a clear concentration of overpaying renters west of I-15 in the
neighborhoods north of the Lake.
Overcrowding and Substandard Housing
Overcrowding of residential units, in which there is more than one person per room, can be a
potential indicator that households are experiencing economic hardship and are struggling to afford
housing. In Lake Elsinore, nine percent of occupied housing units are overcrowded. Overcrowding is more
prevalent in rental units where 18 percent are considered overcrowded compared to owner occupied
housing where only five percent are considered overcrowded. Overcrowding in most of Lake Elsinore is
similar to the average overcrowding rates at the State level (8.2 percent or less). Only two areas in the
City had overcrowding in higher levels (Figure 3.11), in the area northeast of the Lake and in the
southwestern corner of the City around McVicker Canyon Park. It is important to note that this tract is
developed with a single-family subdivision and includes areas outside the City that are likely contributing
to higher levels of overcrowding as those areas that are in unincorporated areas have a wider variety of
housing types including multi-family developments. In contrast to the level of overcrowding in the City,
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areas in and around the cities of Perris, Corona, Mira Loma, Riverside and Moreno Valley show that there
are significantly more tracts with overdrawing levels higher than the State average. Areas in the City east
of I-15 and south to the cities of Wildomar, Murrieta, and Temecula show very few tracts with
overcrowding levels higher than the State average. The Census Tract with overcrowding higher than the
state average is in the area northeast of the Lake, an area with higher levels of overpayments (Figures 3.9
and 3.10) and poverty (Figure 3.6).
Most of the City’s housing stock is fairly new (13 percent of housing units built in the last 10 years and
more than half, or 51 percent of housing unit built in the last 20 years). Based upon observations and
experiences of the Community Development Department, the City estimates that in 2020, fewer than 10
housing units were in severe need of replacement or substantial rehabilitation due to housing conditions.
HUD CHAS data (2014-2018) provides an estimate of households with at least one of four housing
problems (incomplete kitchen facilities, incomplete plumbing facilities, more than one person per room,
or cost burden greater than 30 percent). In Lake Elsinore, 47.9 percent of households reported one of
these housing problems, a level higher than Riverside County (44 percent).
To address substandard housing, the City enforce the City’s Abandoned Residential Property Registration
Program (Ordinance 1252) and encourages owners of houses and properties that become vacant and
abandoned due to foreclosure or other circumstances to maintain or rehabilitate the properties (Program
2). The City uses CDBG funds to provide financial assistance for minor repairs of homes owned and
occupied by lower-income residents. Eligible repairs include plumbing, electrical, painting, carpentry, roof
repairs, and masonry work (Program 3).
Persons Experiencing Homelessness
The County of Riverside conducts an annual Point-in-Time (PIT) Count that is planned, coordinated, and
carried out by county agencies, city municipalities, non-profit service providers, and volunteers, including
those experiencing homelessness. The PIT Count serves as the primary source of population data collected
countywide on individuals and families who live in places that are not meant for human
habitation (e.g., on the streets or in vehicles). In 2020, an estimated 2,155 unsheltered individuals were
counted in Riverside County. In Lake Elsinore, 50 unsheltered individuals were counted, which is 2.3
percent of the total number of unsheltered individuals in Riverside County and one of the lowest counts
in western Riverside County.
Table 3.12: 2020 Riverside County Point in Time Count of
Unsheltered Adults
Jurisdiction Unsheltered Count Jurisdiction Unsheltered Count
Riverside County 2,155 Moreno Valley 165
Lake Elsinore 50 Murrieta 18
Corona 109 Perris 52
Hemet 93 Riverside 587
Jurupa Valley 103 Temecula 59
Source: Riverside County’s 2020 Point in Time Count.
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The City uses CDBG funding to support service organizations serving special needs population in Lake
Elsinore including homeless individuals and families through assistance to non-profits serving the
homeless population (Program 15). The City has also convened a Homeless Task Force to further the City's
efforts to address homelessness and to engage key community leaders, businesses, and residents to join
the City in its efforts to reduce homelessness in our community.
The City has taken strong and proactive action to address homelessness. In September 2020, the City was
awarded a $3.1 million grant through Project Homekey, California’s innovative $600 million program to
purchase and rehabilitate housing, including hotels, motels, vacant apartment buildings and other
properties, and convert them into permanent, long-term housing for people experiencing homelessness
or at risk of becoming homeless. In 2020, the City purchased a motel to be used for crisis stabilization
housing for homelessness residents and residents at risk of homelessness. The Anchor, a crisis stabilization
housing development, is owned by the City of Lake Elsinore and operated by Social Work Action Group
(SWAG) and serves chronic homeless individuals from Lake Elsinore, Wildomar, and adjacent
unincorporated areas. The Anchor has 14 separate units and can house up to 20 individuals.
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Displacement Risk
Displacement refers to instances where a household is forced or pressured to move from their home
against their wishes. Areas with high demand for homes drives up housing costs and increases pressure
for redevelopment, resulting in the potential for displacement. The displacement risk in Lake Elsinore can
be evaluated based on physical and economic displacement.
The HCD AFFH viewer identifies communities, or places where residents may be particularly vulnerable to
displacement in the context of rising property values. Almost all cities in Riverside County that have Census
Tracts along major corridors (such as freeways) are categorized as vulnerable to displacement. The same
holds true for areas of Lake Elsinore west of Interstate 15. The vulnerability, according to the data is based
on the higher proportion of persons of color and lower income and renter households and observed rent
increases.
Physical Displacement
Physical displacement is the result of eviction, acquisition, rehabilitation, or demolition of property; the
expiration of covenants on rent- or income-restricted housing; or the rising cost of housing. Tenure and
displacement are closely tied as renters are at higher risk of displacement from rising rental prices. One
area in the City is susceptible to displacement because of the high proportion of households that are
renters and lower income. Figure 3.13 shows areas with higher proportion of households in renter-
occupied housing units. In Lake Elsinore, the area just north of the Lake and west of I-15 have the highest
level of renter-occupied units (60 to 80 percent) compared to the rest of the City. These areas also have
higher levels of lower income households (Figure 3.5) and residents living in poverty (Figure 3.6) compared
with the rest of the City.
Physical displacement may also be linked to non-financial forces such as segregation. The most common
index of racial segregation is the dissimilarity index, which measures the extent to which different groups
of people live in different neighborhoods in a city or metro area. Generally, the Riverside metro area is
less segregated than many parts of the County and State. The median large metro area has a dissimilarity
index (white/non-white) of 45, meaning that about 45 percent of a city’s population would have to move
to balance the composition of individual neighborhoods to the region’s overall demographic composition.
The Riverside metro area has an index score of 37 and is less segregated than areas such as Los Angeles
(57) and San Diego (44).
The UC Berkeley Roots of Structural Racism Project ranked all major cities by their levels of segregation
using a relatively new measure called the divergence index. While the City of Lake Elsinore is not on the
list (it does not meet the 200,000-person population threshold) , the cities of San Bernardino, Fontana,
Riverside are listed as having “Low-Medium Segregation”, most likely due to the overall diversity of the
region compared with other cities across the country.
Also, it is possible for local government policies to result in the displacement or affect representation of
minorities or persons living with a disability. Currently, most of the cities with adopted reasonable
accommodations procedures have a definition of a disabled person in their zoning ordinances. The City of
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Lake Elsinore has established the procedures to request reasonable accommodation for persons with
disabilities seeking equal access to housing under the California Fair Employment and Housing Act, the
Federal Fair Housing Act, and the Americans with Disabilities Act in the application of zoning law and other
land use regulations, policies, procedures, and conditions of approval.
At-Risk Housing
Housing law requires an inventory and analysis of government-assisted dwelling units eligible for
conversion from lower-income housing to market rate housing during the next 10 years. Reasons for this
conversion may include expiration of subsidies, mortgage pre-payments or pay-offs, and concurrent
expiration of affordability restrictions. Based on City records and information from the California Housing
Partnership Corporation and City records, in the next 10 years (2021-2031) no assisted units have expiring
affordability covenant.
Economic Displacement
Economic displacement is due to inability to afford rising rents or costs of homeownership like property
taxes. Residents of Lake Elsinore have a lower risk of economic displacement due to the relative
affordability of housing in the City. The lower housing costs are due in part to the lower land values and
availability of vacant land. Home sales process are lower than in the region, and typical rents generally
align with HUD fair market rents. Nonetheless, housing cost burden is still common in the City. Cost burden
occurs when housing costs increase faster than household income. When a household spends more than
30 percent of its income on housing costs, it has less disposable income for other necessities such as
health care. In Lake Elsinore, 42.3 percent of all households are overpaying for housing. This is significantly
higher for lower income households, of which 73.6 percent are overpaying for housing. For owner-
occupied households, 31.5 percent are overpaying for housing, while 55.9 percent of renter-occupied
households are overpaying for housing. Figures 3.9 and 3.10 show that the areas in the southern portion
of the City running along the southern boundary of the City have a higher proportion of overpaying
homeowners and that there is a clear concentration of overpaying renters west of I-15 in the
neighborhoods north of the Lake. Figure 3.14 shows median gross rent by Census Tracts. Areas of the City
with the lowest rents are located west of I-15. In general, rents in the City are lower than surrounding
jurisdictions which may indicate a lower risk of economic displacement.
The former Redevelopment Agency and the City have worked to increase the supply of affordable housing
in the City using the former Redevelopment Agency’s Low- and Moderate-Income Housing Fund to assist
qualified affordable housing projects, including 111 very low-income units in the Pottery Court project. As
successor to the former Redevelopment Agency’s affordable housing functions, the City has recently
leveraged Low- and Moderate-Income Housing Asset Funds (LMIHAF) to assist the Cottages at Mission
Trail and the Mission Trail Apartments projects to add 222 deed-restricted affordable units to the City’s
supply of affordable housing. The LMIHAF have also been used to acquire infill sites in the downtown area
for the development of affordable housing units. Future revenues to the LMIHAF will be paid as an
enforceable obligation from Real Property Tax Trust Fund (RPTTF) monies pursuant to the Successor
Agency’s Recognized Obligation Payment Schedule (ROPS). In a lawsuit filed by the Agency and the City
against the California Department of Finance and others, Case Number 34-2017-80002762, the California
Superior Court for the County of Sacramento confirmed the enforceability of a Housing Fund Loan
agreement as an enforceable obligation of the Successor Agency to be recognized by the California
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Department of Finance, the Riverside Auditor-Controller, and the Oversight Board on the Agency’s ROPS.
The outstanding balance due to the LMIHAF as reflected on the Successor Agency’s 2021-22 ROPS is
$27,012,366. These funds will be paid over time from available RPTTF.
Disproportionate Need and Displacement Issues
The Disproportionate Need and Displacement analysis reveals that areas of the City located west of
interstate 15 have a disproportionate needs and higher vulnerability to displacement in these areas:
• Cost burden;
• Overcrowding; and
• Displacement risk.
The areas of the City west of Interstate 15 (near the Lake) have lower household incomes, a higher
proportion of renters, rising rents, higher levels of residents living poverty, and households experiencing
housing cost burden.
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Sites Inventory Consistency with Affirmatively Furthering Fair Housing (AFFH)
State law requires that for housing elements due on or after January 1, 2021, sites must be identified
throughout the community in a manner that affirmatively furthers fair housing opportunities
(Government Code Section 65583[c][10]). “Affirmatively furthering fair housing” means taking meaningful
actions that, taken together, address significant disparities in housing needs and in access to opportunity.
Figure 3.15 shows site inventory site locations and data that shows the location of lower opportunity
resources areas and areas of Racially or ethnically concentrated areas of poverty (R/ECAPs). Low and
moderate resource areas in Lake Elsinore are generally located west of I-15 where the most developed
areas of the City are located. Because of this, many sites (including Specific Plan capacity sites) are located
here. Eight specific plan areas are located in low or moderate resource areas, and they have a combined
capacity of 4,187 units (345 very low, 2,622 moderate, and 1,220 above moderate income RHNA units).
Almost all vacant R3 and RMUS sites are located in these areas as well. Combined, sites in low and
moderate resource areas have a total capacity of 3,842 units (2,289 lower income units, 2,622 moderate
income units, and 1,220 above moderate-income units). While there is an overconcentration of above
moderate-income units in higher resources areas this is due to the single-family, specific plan nature of
the newer parts of Lake Elsinore. Nevertheless, higher resources areas have a large capacity of lower,
moderate, and above moderate-income units. Nine specific plan areas and two vacant sites are located in
higher resources areas and have a combined capacity of 4,901 units (931 lower income units, 2,727
moderate income units, and 2174 above moderate-income units).
The sites inventory for the 2021-2029 planning period consists of estimated ADU production, vacant,
undeveloped capacity in specific plan areas and vacant land designated for high density and mixed-use
development. Exclusive of ADU estimates, the lower-income RHNA is addressed with sites designated for
multi-family residential development based on density for those units. Those sites have capacity for 3,173
lower-income units, with 71 percent of these lower-income units being identified on vacant sites (zoned
HDR or RMU) and 29 percent in specific plan areas. 1,900 additional multi-family units are identified in
Specific Plan areas but are credited toward the moderate income RHNA due to the allowable densities for
those plan areas (less than 24 units per acre, specifically densities of 18 and 20 units per acre).
Nonetheless, affordable housing in Lake Elsinore has most commonly been developed in areas allowing
up to 18 units per acre, which demonstrates that while the City is not taking credit for lower income
affordability for these sites, there is a very realistic potential for development of affordable housing here.
• Racially and ethnically concentrated areas of poverty (RE/CAPs): The sites inventory does not
exacerbate conditions in regard to racially and ethnically concentrated areas of poverty. Part of a
R/ECAP is located within Lake Elsinore in the northernmost area of the City (Figure 3.7) in the area
where the North Peak Specific Plan is located. This area (and specific plan) is undeveloped, and
the R/ECAP is most likely picking up demographic data from outside the City in unincorporated
County pockets. The North Peak Specific Plan includes 1,200 future single-family units (no multi-
family units) as such, no lower income sites are in this area.
• Segregation and integration: race/ethnicity: The sites inventory does not exacerbate race/ethnic
concentration conditions. The City is very diverse with 69 percent residents identifying as non-
White and more than half (53 percent) of residents identifying as Hispanic. Most of the City block
groups show a population that is between 60 and 80 percent non-white. Of the 30 blocks groups
PAGE – 3.70 LAKE ELSINORE GENERAL PLAN
that cover the City (many of these also cover areas outside the City), only three have a proportion
of non-white residents higher than 80 percent. Of these three, only one (0430.012) is in an area
with identified sites. Three sites (R3-11, R3-12, and R3-13) are located here with a total capacity
of 58 lower income units. This translates to less than 2 percent of lower income RHNA capacity in
areas.
• Segregation and integration: persons with disabilities: Lake Elsinore is like the rest of the county
in that all of the census tracts have less than 20 percent of their population living with a disability.
There are no concentrations of persons with a disability in Lake Elsinore as areas with a lower
proportion of disabled persons coincides with areas of the City that have large undeveloped
(vacant) areas.
• Segregation and integration: familial status: The composition and distribution of family
households in Lake Elsinore are generally like that of the region, in which more than 60 percent
of children in each census tract live in a household with a married couple and less than 40 percent
live in a female headed household (no spouse). Figures 3.3 and 3.4 show that within Lake Elsinore,
there are concentrations of children living in female-headed households (no spouse) in the areas
north of the Lake (west of I-15). This area is where most of the R3 and RMU sites are located (with
a total lower income capacity of 1,844 units) and two specific plans with identified available
capacity (1,250 moderate income units).
• Segregation and integration: income level: Figure 3.5 shows median household income by Census
block group and Figure 3.6 shows poverty status by Census tract. In Lake Elsinore the highest
median household incomes are located outside the areas near the Lake (generally east of I-15 and
west of Riverside Drive). Of the 30 blocks groups that cover the City (many of these also cover
areas outside the City), only six have a median household income higher than the state median of
$87,000. The block group (0430.012) with the lowest median income (less than $30,000) is in an
area with three identified sites (R3-11, R3-12, and R3-13) with a total capacity of 58 lower income
units. This translates to less than 2 percent of lower income RHNA capacity in areas. A large
proportion of sites are in areas with the second lowest median household incomes ($30,000 to
$55,000). In these areas there are more moderate and above moderate income RHNA units than
there are lower income units. There are 19 R3 and RMU sites (with a lower income capacity of
1,386 units) and four specific plans (Eastlake, Nichols Ranch, North Peak, and The Diamond) with
capacity for 1,934 moderate and 684 above moderate-income units.
• Disproportionate housing need: cost burden (overpayment): In Lake Elsinore, 42.8 percent of all
households are cost burdened while 78.8 percent of lower income households (earning up to 80
percent of the County AMI) are cost burdened. Cost burden is most prevalent among renter
households. Within the City there is a clear concentration of overpaying renters west of I-15 in
the neighborhoods north of the Lake. This area coincides with the location of 25 R3 and RMU sites
with a lower income capacity of 1,844 units and two specific plans (Eastlake and The Diamond)
with capacity for 1,250 moderate-income units.
• Disproportionate housing need: overcrowding: Levels of overcrowding in most of Lake Elsinore is
similar to average overcrowding rates at the State level (8.2 percent or less). Only two census
tracts in the City had overcrowding in higher levels (Figure 3.11), in the area northeast of the Lake
and in the southwestern corner of the City around McVicker Canyon Park. This area coincides with
the location of 15 R3 and RMU sites with a lower income capacity of 1,509 units 67 percent of all
PAGE – 3.71 LAKE ELSINORE GENERAL PLAN
lower income units on vacant non-specific plan sites) and two specific plans (Eastlake and The
Diamond) with capacity for 1,250 moderate-income units.
• Displacement risk: Tenure and displacement are closely tied as renters are at higher risk of
displacement from rising rental prices. Figure 3.13 shows areas with higher proportion of
households in renter-occupied housing units. In Lake Elsinore, the area just north of the Lake and
west of I-15 have the highest level of renter-occupied units (60 to 80 percent) compared to the
rest of the City. These areas also have higher levels of lower income households (Figure 3.5). The
three census tracts with the higher proportion of renter households coincide with the location of
25 R3 and RMU sites with a lower income capacity of 1,844 units and two specific plans (Eastlake
and The Diamond) with capacity for 1,250 moderate-income units.
Most areas designated for future specific plan development are identified as high resources areas (shaded
in blue) and as such most future residential development sites will be located in high resources areas.
The location of potential HDR and RMU sites in this area represents both improved and exacerbated fair
housing and equal opportunity conditions:
• The sites inventory improves fair housing conditions and access to opportunity as new multi-
family development in higher resources areas (through Specific Plan development) will provide
new housing opportunity for current and future residents. In the older areas of the City , in and
around Downtown and the Lake, new residential development in these areas is expected to
stimulate economic development, job creation, and will contribute to a higher quality of life for
existing and future residents of this area. No lower income sites are located in racially or
ethnically concentrated areas of poverty (RECAPs). There is also a large proportion of new housing
capacity at all income levels in higher resources areas. Nine specific plan areas and two vacant
sites are located in higher resources areas and have a combined capacity of 4,901 units (931 lower
income units, 2,727 moderate income units, and 2174 above moderate-income units).
• The sites inventory exacerbates fair housing conditions by adding housing in areas with lower
incomes, higher proportions of children living in female headed households, and housing
problems (cost burden and displacement risk). This is seen most clearly in areas located around
the Lake because most infill, higher-density development is expected to occur in these areas. The
location of very low-income sites around the Lake requires a continued effort from the City to
address needs of the community and work toward revitalization of these areas. The City has been
proactive in improving and revitalizing this part of the City. The City has added incentives to
encourage lot consolidation in the text of the Downtown Elsinore Specific Plan. The City
successfully pursued a grant from the Environmental Protection Agency's (EPA) Building Blocks
for Sustainable Communities Program that will fund a comprehensive development plan to spur
development in the Downtown area by identifying potential investments needed to increase infill
residential development. The City has also purchased land for the future development of
affordable housing, pedestrian pathways and linkages, and creation of a new civic center and
other community amenities such as a public library or community center. Finally, the City’s
“Dream Extreme 2040” comprehensive long-term strategic plan has been adopted and directs the
City to focus on the assets that matter most to the Lake Elsinore community including the Lake
and the Downtown area. As a result of the analysis, Program 9 directs the City to pursue land
PAGE – 3.72 LAKE ELSINORE GENERAL PLAN
purchases for residential development, redevelop tax-delinquent properties, consolidate parcels
to create larger, development ready pads in/near Downtown, pursue modifications to residential
development standards to facilitate development in Downtown, and identify funding sources to
invest in infrastructure and housing.
PAGE – 3.73 LAKE ELSINORE GENERAL PLAN
PAGE – 3.74 LAKE ELSINORE GENERAL PLAN
Local Knowledge
Public Outreach
As part of the Housing Element update, the City of Lake Elsinore proactively engaged the community
through a variety of avenues including digital/social media outreach, a community survey, a community
workshop, and direct email to stakeholder groups. The results of the workshop and survey findings
relevant to the AFFH analysis include:
• Housing Cost is an issue to many residents [Disproportionate Housing Need]:
o Over 44 percent of respondents indicated that the cost of housing in Lake Elsinore prevents
children from being able to stay/own homes when they grow up.
o Nearly 34 percent of respondents wishing to own a home in Lake Elsinore indicated that they
cannot find a home in their target price range and 18 percent indicated that they do not
currently have the financial resources for an adequate monthly mortgage payment.
o When identifying the types of housing needed in Lake Elsinore, the 4th most frequent
response was “affordable or workforce housing”.
o When asked to indicate the importance of potential housing-related actions or programs,
establishing/supporting programs to help first-time homebuyers and programs to help
homeowners at risk of mortgage default were in the top three housing actions identified as
very important.
• Residents expressed an interest in new housing that was affordable and met the needs of seniors
and families [Sites Inventory]:
o Residents would like to see new housing in areas with the least impact on traffic and that
new housing should be spread evenly across all parts of the City.
o Participants expressed interest in Accessory Dwelling Unit (ADU) development as a
housing opportunity that can help address housing needs such as overcrowding.
o Participants expressed the need for more senior housing.
o Participants expressed a desire for additional strategies to encourage development in
Downtown.
Historic Patterns of Development
In Lake Elsinore, areas west of Interstate 15 near the Lake were the epicenter of residential growth during
the late 1800s and early 1900s. In contrast, new residential growth since the early 1990s has been
primarily in areas outside of the historic core in the City’s Specific Plan areas (primarily east of Interstate
15). The Disproportionate Need and Displacement analysis shows that these older areas of the City have
disproportionate needs and higher vulnerability to displacement as well as lower household incomes, a
higher proportion of renters and minority residents, rising rents, and higher levels of residents living
poverty. The City has worked to address issues that are common for older historic core areas in smaller
cities such as blight and aging infrastructure. The City has undertaken several placemaking, economic
development and community revitalization strategies:
PAGE – 3.75 LAKE ELSINORE GENERAL PLAN
• The City successfully pursued a grant from the Environmental Protection Agency's (EPA) Building
Blocks for Sustainable Communities Program that will fund a comprehensive development plan
to spur development in the Downtown area by analyzing existing assets and potential investments
needed to increase infill residential development.
• The City has purchased vacant lots for the future development of affordable housing, pedestrian
pathways and linkages, and creation of a new civic center and other community amenities such
as a public library or community center.
• In July 2020, the City purchased a motel to be used for crisis stabilization housing for
homelessness residents and residents at risk of homelessness. The City anticipates that by 2030,
the property will be converted to permanent housing for extremely low-income households.
• Adopted in July 2020, the City’s “Dream Extreme 2040” comprehensive long-term strategic plan
focuses on the assets that matter most to the Lake Elsinore community including the Lake and the
City’s Downtown area. The City is working to attract residential development to the area through
strategies such as acquiring and redeveloping tax-delinquent properties and consolidating parcels
and by focusing on parcel assembly to create larger, development ready pads in/near Downtown.
Fair Housing Issues
The 2019-2024 County of Riverside AI does not identify impediments to fair housing specific to Lake
Elsinore, however some of the regional impediments to fair housing identified within jurisdictions in
Riverside County may assist the City in identifying local fair housing issues. The County of Riverside AI
identified the following issues and establishes recommendations to improve fair housing choice.
Discrimination against Persons with Disabilities: Consistent with findings in the 2019 AI, nearly 63 percent
of the discrimination complaints in the County of Riverside over the last five years were based on physical
or mental disability. The high proportion of disability complaints to FHCRC is consistent with other
communities in the area and is also consistent with data at the state and federal level. Fair housing
discrimination based on disability demonstrates a lack of understanding in the housing industry of the
housing rights of persons with disabilities. Disabled persons are experiencing difficulties when requesting
reasonable accommodations or modifications. Persons with cognitive disabilities experience significantly
more problems with these accommodations.
Local Recommendation: The City of Lake Elsinore, through implementation of Program 14, will
provide housing opportunities to meet the special housing needs of special needs residents—
including older adults, disabled, developmentally disabled, large families, the homeless,
farmworkers, and extremely low-income households—by giving priority to development projects
that include a component for special needs groups in addition to other lower-income households.
The City also accommodates persons with disabilities who seek reasonable waivers or
modifications of land use controls and/or development standards pursuant to procedures and
criteria set forth in the Municipal Code and to promote public awareness of federal, State, and
local regulations regarding equal access to housing.
PAGE – 3.76 LAKE ELSINORE GENERAL PLAN
Siting and Standards for Transitional and Supportive Housing: The County of Riverside AI included an
analysis of public policies to determine if impediments to fair housing choice exist that negatively affect
the ability of members of protected classes to secure or maintain housing. The City of Lake Elsinore
Municipal Code addresses the siting of transitional and supportive housing, provides definitions, and
allows such housing in the same manner as all multi-family housing.
Local Recommendation: Program 22 directs the City to amend its Zoning Regulations to comply
with SB 2 requires that the City treat transitional and supportive housing as a residential use and
only subject to those restrictions that apply to other residential dwellings of the same type in the
same zone (Government Code Section 65583(a)(5)). Effective January 1, 2019, AB 2162
(Supportive Housing Streamlining Act) requires supportive housing to be considered a use by-right
in zones where multi-family and mixed uses are permitted, including nonresidential zones
permitting multi-family uses if the proposed housing development meets specified criteria.
Program 22 is proposed to ensure that the City of Lake Elsinore meets the requirements of AB
2162, specifically that supportive housing be considered a by-right use in zones where multi-
family and mixed uses are permitted in zones outside where it is already permitted (R-3, RMU,
and CMU zones).
Identification and Prioritization of Contributing Factors in Lake Elsinore
Housing Element law requires that the City list and prioritize contributing factors to fair housing issues.
Contributing factors create, contribute to, perpetuate, or increase the severity of fair housing issues, are
fundamental to adequate goals and actions, and must be related to the overall analysis. This identification
and prioritization must give highest priority to factors that limit or deny fair housing choice or access to
opportunity or negatively impact fair housing. The following are contributing factors that affect fair
housing choice in Lake Elsinore. Programmatic actions to address the fair housing issues ands contributing
factors can be found in Chapter 6 under Program 25.
Highest priority is given to the first two fair housing issues (concentration of minority, low- and moderate-
income population and households experiencing disproportionate need and displacement risk) and their
associated contributing factors due to the number of residents these issues affect. The two other fair
housing issues (discrimination against persons with disabilities and siting and standards for transitional
and supportive housing) are identified as having a lower priority not because they are not important,
rather because these are tied to changing State laws and have specific actions that will be implemented
early in the planning period to directly address these.
1. Concentration of minority, low- and moderate-income population, households experiencing
disproportionate need and displacement risk. – HIGH PRIORITY
The Disproportionate Need and Displacement analysis reveals that areas of the City located west of
interstate 15 have a disproportionate needs and higher vulnerability to displacement due to:
• Cost burden;
• Overcrowding; and
PAGE – 3.77 LAKE ELSINORE GENERAL PLAN
• Displacement risk.
The areas of the City west of Interstate 15 (near the Lake) have lower household incomes, a higher
proportion of renters and minority residents, rising rents, and higher levels of residents living poverty.
Almost all cities in Riverside County that have Census Tracts along major corridors (such as freeways) that
are categorized as vulnerable to displacement. The same holds true for areas of Lake Elsinore west of
Interstate 15. The vulnerability, according to the data is based on the higher proportion of persons of color
and lower income and renter households and observed rent increases.
Contributing Factors:
1. Lack of private investments in specific neighborhoods.
2. The availability of affordable units in a range of sizes and prices.
3. Displacement of residents due to economic pressures.
2. Disparities in Access to Opportunity – HIGH PRIORITY
The analysis found disparities in access to opportunities particularly regarding:
• School performance;
• Environmental health; and
• Access to transit.
A comparison of schools in the Lake Elsinore Unified School District on publicschoolreview.com show that
the lowest scoring K-12 schools (rank of 3/10 or less) are all located in areas of the City west of I-15. These
schools are in areas classified as moderate or Low Resources areas (according to TCAC data shown on
Figure 3.8).
Figure 3.12 shows that areas west of I-15 and in the northern part of the City (north of SR-74) have higher
CalEnviro Screen scores. Areas with a high score experience a higher pollution burden and vulnerability
than census tracts with low scores. Figure 3.12 also shows that two Census tracts located north of the
Lake (west of I-15) and to the northern end of the City and are identified as Disadvantaged Communities
(DAC) consistent with SB 535. These DACs are defined as the top 25 percent scoring areas from
CalEnviroScreen.
The City scored 2.1 in the AllTransit Performance Score (Center for Neighborhood Technology 2019,
AllTransit, alltransit.cnt.org ) indicating that the City had very low combination of trips per week and
number of jobs accessible enabling negligible number of people to take transit to work. The City’s score
was lower than the County score of 3.3. AllTransit data also shows that in Lake Elsinore, 47.3 percent of
workers live within ½ mile of transit compared with 64.6 percent for the County.
Contributing Factors:
1. Lack of private investments in specific neighborhoods.
2. Location of proficient schools and school assignment policies.
3. Location of environmental health hazards
PAGE – 3.78 LAKE ELSINORE GENERAL PLAN
3. Discrimination against persons with disabilities and siting and standards for transitional and
supportive housing – LOWER PRIORITY
The land use constraints analysis identified various issues that would affect fair housing opportunities for
special needs residents including:
• The need to revise the definition for Residential Care Facilities and clarify siting for residential care
facilities for 7 or more persons and ensure that approval procedures do not constraint
development of housing for persons with disabilities.
• The need to revise the definition of “family” as well as establish a definition for “household” that
is flexible and includes a variety of household types, consistent with State and federal fair housing
laws.
• The need to amend the City’s zoning regulations and make changes to ensure compliance with
Senate Bill 2 that requires that the City treat transitional and supportive housing as a residential
use and only subject to those restrictions that apply to other residential dwellings of the same
type in the same zone.
• The City has included these actions in the Housing Plan and are expected to be completed early
in the planning period.
Contributing Factors:
1. Land use and zoning laws
2021-2029 HOUSING ELEMENT PAGE – 4.1
lake elsinore general plan
housing element
4. HOUSING RESOURCES AND SITES INVENTORY
State law requires that jurisdictions provide an adequate number of sites to allow for and facilitate the
production of their regional share of housing. To determine whether a jurisdiction has enough land to
accommodate its share of regional housing needs for all income groups, that jurisdiction must identify
“adequate sites.” Under State law (California Government Code section 65583[c][1]), adequate sites are
those with appropriate zoning and development standards—with services and facilities—needed to
facilitate and encourage the development of a variety of housing for all income levels.
This section identifies available sites in Lake Elsinore for future housing development and evaluates
how these land resources can work toward satisfying future housing needs. Also discussed are the
financial and administrative resources available to support affordable housing.
Housing in Lake Elsinore
Demand for new housing in Lake Elsinore has significantly increased since 2015 due to the lack of available
re-sale units. The City is well positioned to leverage this demand with ample availability of vacant,
residentially zoned land and entitled Specific Plan areas. Due to the availability of undeveloped land and
relatively lower costs (compared to other jurisdictions), housing in Lake Elsinore is more affordable. Many
new market-rate units can provide affordability at the moderate-income level (80 percent of the area
median income) even at market-rate costs.
While market conditions are favorable for housing production, the City is working diligently to remove
constraints to housing development and being proactive in encouraging and facilitating development of
both market-rate and affordable housing.
• The City successfully pursued a grant from the Environmental Protection Agency's (EPA) Building
Blocks for Sustainable Communities Program that will fund a comprehensive development plan
to spur development in the Downtown area by analyzing existing assets and potential investments
needed to increase infill residential development.
PAGE – 4.2 LAKE ELSINORE GENERAL PLAN
• The City has purchased vacant lots for the future development of affordable housing, pedestrian
pathways and linkages, and creation of a new civic center and other community amenities such
as a public library or community center.
• In July 2020, the City purchased a motel to be used for crisis stabilization housing for
homelessness residents and residents at risk of homelessness. The City anticipates that by 2030,
the property will be converted to permanent housing for extremely low-income households.
• The Anchor, a crisis stabilization housing development, is owned by the City of Lake Elsinore and
operated by Social Work Action Group (SWAG) and serves chronic homeless individuals from Lake
Elsinore, Wildomar, and adjacent unincorporated areas. The Anchor has 14 separate units and
can house up to 20 individuals.
• In September 2020, the City was awarded a $3.1 million grant through Project Homekey,
California’s innovative $600 million program to purchase and rehabilitate housing, including
hotels, motels, vacant apartment buildings and other properties, and convert them into
permanent, long-term housing for people experiencing homelessness or at risk of becoming
homeless. This funding was used to reimburse the City for most of its purchase costs and to
complete renovations to The Anchor such as utility work, safety improvements, ADA
accommodations, landscaping, and furnishings for each unit. In addition, this grant provided the
City with $336,000 toward operating expenses through June 2022.
• Adopted in July 2020, the City’s “Dream Extreme 2040” comprehensive long-term strategic plan
to provide a framework to guide all decision making over the next 20 years by identifying key
Anchors, Aspirations, and Strategies. City efforts will focus on the assets that matter most to the
Lake Elsinore community, including an inventory of development opportunities. Several housing
sites in this inventory are in and around two of the three identified anchors: the Lake and the
Downtown area. The City will prioritize attracting residential development to the area through
strategies such as acquiring and redeveloping tax-delinquent properties and consolidating parcels
and by focusing on parcel assembly to create larger, development ready pads in/near Downtown.
This chapter presents the housing resources availability in Lake Elsinore and will be implemented
alongside this Element’s Housing Plan, which lays out specific actions to facilitate residential development
in Lake Elsinore.
Regional Housing Needs Allocation (RHNA)
The sixth cycle RHNA for the Southern California Association of Governments (SCAG) region covers an 8.3-
year planning period (June 30, 2021 – October 15, 2029). For every SCAG jurisdiction, the RHNA is divided
into four income categories: very low, low, moderate, and above moderate. SCAG has assigned Lake
Elsinore an allocation of 6,681 units to be accommodated during this planning cycle, with the units divided
among the four income categories as shown in Table 4.1.
The City of Lake Elsinore is not responsible for the actual construction of these units. The City is, however,
responsible for creating a regulatory environment in which the private market could build these units.
This includes the creation, adoption, and implementation of General Plan policies, zoning, and
development standards, and/or incentives to encourage the construction of various types of units.
2021-2029 HOUSING ELEMENT PAGE – 4.3
Table 4.1: RHNA Allocation 2021-2029
Income Group
Total Housing
Units
Percentage of
Units
Extremely-/Very Low-Income (0-50% AMI)* 1,878 28%
Low-Income (>50-80% AMI) 1,099 16%
Moderate-Income (>80-120% AMI) 1,134 17%
Above Moderate-Income (>120% AMI) 2,570 38%
Total 6,681 100%
Notes:
AMI: Area Median Income
* Note: Pursuant to AB 2634, local jurisdictions are also required to project the housing needs
of extremely low-income households (0-30% AMI). In estimating the number of extremely low-
income households, a jurisdiction can use 50% of the very low-income allocation (939 units).
Progress towards the RHNA
Permitted Housing Units
Since the RHNA uses June 30, 2021 as the baseline for growth projections for the planning period,
jurisdictions may count any housing units permitted or approved from June 30, 2021 to the start of the
Housing Element planning period (October 15, 2021) against the RHNA allocation.1 Table 4.2 shows credit
for 36 single-family units permitted since June 30, 2021.
Approved Projects
Tessera Development Project
The Tessera condominium project was approved in 2005, and the property developer estimates
construction to occur in late 2021. The project consists of 90 condominiums located just south of I-15
along Franklin Street. Corelogic’s 2020 Southern California Resale Activity report estimates a median sales
price of $390,000 for condominiums in Lake Elsinore. The 90 units are credited against the moderate-
income RHNA, as median sales prices for condominiums fall within the affordability level of moderate-
income households.
Approved Projects Summary
Approved residential development projects credited toward the 2021-2029 RHNA can accommodate 126
units (Table 4.2). The City has a remaining RHNA of 6,555 units to be addressed through site identification.
1 The Housing Element planning period differs from the RHNA Planning period. The Sixth Cycle RHNA covers a 10-year planning
period of December 31, 2018 to December 31, 2028. The Housing Element covers an eight-year planning period of December
31, 2020 through December 31, 2028.
PAGE – 4.4 LAKE ELSINORE GENERAL PLAN
Table 4.2: Approved Projects Affordability Distribution
Affordability Distribution
Ex./Very Low
(0-50% AMI)
Low (>50-80%
AMI)
Moderate
Income
(>80-120%
AMI)
Above
Moderate
Income
(>120% AMI) Total
Building Permits issued
since 06/30/21
-- -- -- 36 36
Tessera Development -- -- 90 -- 90
Total -- -- 90 36 126
2021-2029 RHNA 1,878 1,099 1,134 2,570 6,681
Remaining RHNA:
Surplus/Remaining (+/-)
-1,878 -1,099 -1,044 -2,534 -6,555
Source: City of Lake Elsinore, 2020
Residential Sites Inventory
State law requires that jurisdictions demonstrate in the Housing Element that the land inventory is
adequate to accommodate that jurisdiction’s share of the region’s projected growth. After accounting for
approved projects, the City has a remaining RHNA of 6,555 units. Throughout the City, various properties
zoned for residential and mixed-use use and approved for Specific Plan development collectively provide
sufficient capacity to meet and exceed identified housing needs for very low-income households, as well
as provide an inventory buffer for all income categories. A detailed listing of sites, consistent with State
law, is included in Appendix A.
Sites Inventory Methodology
Realistic Capacity
Consistent with HCD Guidelines, the methodology for determining realistic capacity on each identified site
must account for land use controls and site improvements. The High Density Residential (HDR) and
Residential Mixed-Use (RMU) designations allow residential development at a density of 19 to 24 units
per acre. Based on the intent of designations and the potential for the development of non-residential
uses, the realistic capacity assumptions are set forth as follows:
• High Density Residential. The HDR designation provides locations for multi-family residential
development at densities between 19 and 24 units per acre. To account for land use controls and
site improvements, realistic capacity is calculated based on the median allowable density (22 units
per acre). This is a conservative estimate; more recent multi-family, affordable developments in
Lake Elsinore have exceeded this density estimate. Pottery Court, an affordable housing
apartment complex built in 2011, was entitled at a density of 26 dwelling units per acre, exceeding
the General Plan estimates. The Rivers Edge Apartments, built in 2007, was also entitled at 26
2021-2029 HOUSING ELEMENT PAGE – 4.5
dwelling units per acre. The 81-unit, affordable Mission Trail Apartments built in 2019 was
developed at close to 84 percent of the maximum density allowed in the Eastlake Specific Plan
area (18 units per acre). The use of median densities is a conservative estimate for projects within
the City of Lake Elsinore as development generally occurs at a higher density.
• Residential Mixed Use. The RMU designation provides for a mix of residential and non-residential
uses on a single development site, with an emphasis on high-density residential uses. All-
residential developments are allowed, and non-residential uses are allowed in a subordinate
capacity. The RMU designation has a density of 19 of 24 dwelling units per acre. An additional 20
to 35 percent of the building square footage may be utilized for commercial uses as an incentive
for mixed-use development. Therefore, a two-acre RMU development could propose a 48-unit
housing development with additional space for commercial uses—up to 35 percent of the building
square footage. Projects that utilize a density bonus pursuant to Municipal Code section
17.86.060 can achieve a density of up to 35 dwellings per acre, provided the site meets certain
criteria (proximity to a bus or rapid transit system stop) or provides community benefits. One
benefit is consolidation of disparate parcels. Because RMU allows for combined residential/non-
commercial uses in a manner that protects the maximum density and facilitates development of
affordable units at higher densities, a 24-unit per acre realistic capacity is feasible. Nonetheless,
the median allowable density (22 units per acre), conservative estimate, is used to account for
land use controls and site improvements and to mirror expected development in the HDR zone.
To assess the potential for nonresidential demand in the RMU zone and to assess the
appropriateness of densities in the RMU and HDR zones, two developers with experience working
in Lake Elsinore were interviewed. One of the interviewees specializes in market-rate housing and
the second interviewee specializes in development of affordable, multi-family housing. Both
interviewees confirmed that in the areas of Lake Elsinore where the RMU zone is located, the
market demand is overwhelmingly for residential standalone development. In fact, both
interviewees indicated that the development of mixed-use (with a residential and non-residential
component) is very unlikely given the lack of demand for that type of development in Lake
Elsinore. The demand for commercial or office uses in this zone is also very limited given the
residential nature of the area and the availability of higher visibility commercial areas in other
parts of the City. While the potential for higher non-residential development demand may occur
as the area is further developed, currently and in the planning period that is unlikely to happen.
The interviewees assessment fit with development trends in the RMU zone which point to a lack
of demand for non-residential development. A survey of all developed RMU properties show only
two non-residential uses (a commercial strip center built in 1978 and a church built in the 1960s)
and both pre-date the creation of the RMU zone (in 2011). No properties have been developed
since 2011 (when the RMU zone was adopted) although a five-unit multifamily rehabilitation
project was completed in 2017.
While additional vacant land is available in the Commercial Mixed-Use Zone (CMU), that zone is
not included in the inventory as uses in that zone are expected to have a more commercial
character. Sites that allow for mixed use have been limited to the RMU zone because that zone is
PAGE – 4.6 LAKE ELSINORE GENERAL PLAN
in areas with residential development and future development is expected to be primary
residential. The RMU zone allows non-residential uses in a limited capacity and in a manner
compatible with the street environment and adjacent to residential areas.
Capacity for Specific Plan sites are based on the approved units for the plan minus any developed units.
Densities Appropriate for Accommodating Lower Income Housing
The California Government Code states that if a local government has adopted density standards
consistent with the population-based criteria set by State law (at least 30 units per acre for Lake Elsinore),
HCD is obligated to accept sites with those density standards as appropriate for accommodating the
jurisdiction’s share of regional housing need for lower-income households. This is referred to colloquially
as the “default density.” Developments in Lake Elsinore have demonstrated that affordable housing can
be constructed at substantially lower densities than normally associated with affordable housing; this is
due to the ample supply of vacant land priced at levels lower than land costs in the region. As a result,
housing costs in the City have generally remained lower than in other areas of the region. Affordability
assumptions differ for the 28 vacant residential sites (zoned for High Density Residential (HDR) and
Residential Mixed Use (RMU) at 19 to 24 units per acre) and for residential development capacity in
Specific Plan areas.
For vacant residential sites, the zoning assumption is that the HDR and RMU sites are credited toward the
very low income RHNA based on the zoning and the City’s strong track record of developing affordable
housing at even lower densities than 19 to 24 units per acre. The two zones are expected to develop with
multi-family housing and the sites are in areas with lower housing costs than the Specific Plan areas.
Interviews with two local developers confirm that the 19 to 24 unit per acre density for both zones is at
the top end of what can be developed in the areas of Lake Elsinore near the Lake. The availability of
undeveloped land and lower land costs relative to surrounding areas in these two designations point to a
lack of demand for higher multi-family residential densities. Both developers expressed that going above
24 units per acre is not realistic in Lake Elsinore as the demand for multi-family housing is not strong, due
to the relative affordability of single-family homes in the City. In essence, new residents move to Lake
Elsinore to buy a home, not rent an apartment. For those in the rental market, rising rents are pushing
families to rent homes that have similar rental costs than multifamily housing but with more space. One
of the interviewees who specializes in the development of affordable housing stated that the major
barriers to development of multi-family housing in Lake Elsinore are lack of demand and limited financing
availability.
One of the interviewees indicated that the allowable densities in the RMU and HDR zones (19 of 24
dwelling units per acre) are at the high end for realistic residential development in this area due to the
availability of vacant land at relatively low prices in this part of Lake Elsinore, making higher densities
unnecessary and infeasible. The interviewee who specializes in affordable housing development also
indicted that affordable housing at these densities is achievable given the City’s track record of affordable
housing development in this part of Lake Elsinore and because affordable housing developers would most
likely use a density bonus. The interviewee pointed to the newest examples of affordable housing in
2021-2029 HOUSING ELEMENT PAGE – 4.7
areas near the Lake. There are currently no affordable housing developments in the RMU zone for direct
comparison, nonetheless, most of the RMU zone is in an area with a strong multi-family development
track record. In fact, most RMU properties are located from less than one to three miles from the City’s
three newest affordable housing developments: Pottery Court (113 units), Mission Trail Apartments (81
units), and Cottages at Mission Trail (143 units). These three projects were developed in zones that allow
a lower density (18 units per acre) than the RMU zone (19 to 24 units per acre). Several of the City’s
affordable housing developments have occurred in the HDR zone but the most recent developments were
developed within the Eastlake Specific Plan area located just east of the RMU and HDR zone areas. The
Pottery Court Apartments, an affordable housing development built in 2011 and located in the same area
provides further evidence of density appropriateness. The 113-unit development was built in the MDR
zone which only allows a density of 7 to 18 units per acre.
When asked about the barriers to developing affordable housing, the developer indicated that it is a
matter of funding competitiveness, not density that has limited additional development in Lake Elsinore.
Specifically, they pointed to the scoring structure for popular funding sources such as cap and trade funds
which favor new development in high resources areas. Finally, the developer indicated that affordable
housing developers assume the use of a density bonus and see a density of 24 units per acre as the
equivalent of at least 36 units per acre with the anticipated density bonus.
For undeveloped Specific Plan capacity, the affordability assumptions are more nuanced as the Specific
Plan areas allow for a wider range of housing types, sizes, and amenities and many of the Specific Plans
are areas of the City with slightly higher housing costs. The affordability assumptions for both site types
are discussed below.
Affordable Densities for Vacant Residential Land
A significant number of affordable housing developments in the City have been constructed at densities
lower than the 30 units per acre default density. Specifically, affordable housing units (affordable to very
low- and low-income households) have most commonly been built in zones with a maximum allowed
density of 18 units per acre. The Broadstone Rivers Edge Apartments (2007), Pottery Court (2011), Mission
Trail Apartments (2020), and the Cottages at Mission Trail (2020) developments (all affordable housing
projects) were developed on properties allowing a maximum of 18 units per acre.
Table 4.3 presents a sample history of affordable developments in the City and one development located
in the Sphere of Influence (one block from the City’s boundary). The City is also in preliminary discussions
with a developer interested in developing a nine-unit affordable housing project. The tentative project
would have a density of 16.6 units per acre in a zone that allows a density of 7 to 18 units per acre.
Development patterns and a strong history of affordable housing development demonstrates that
affordable housing projects are and will continue to be achieved in lower density areas. As such, crediting
sites identified in the HDR and RMU designations (19-24 units per acre) toward the lower-income RHNA
is a realistic assumption.
PAGE – 4.8 LAKE ELSINORE GENERAL PLAN
Table 4.3: Affordable Housing Developments
Name Locations
Year
Built
Total
Units
Affordable
Units
General Plan and Zoning
Density
Parkside Apartments 442 Kellogg Street 1987 37 14 HDR/R3 (19-24 du/ac)
Villa Siena Apartments 31300 Auto Center Dr 1998 126 126 MDR/R2 (7-18 du/ac)
Lake View Apartments (Phase 1) 32209 Riverside Drive 1980 88 87 HDR/R3 (19-24 du/ac)
Lake View Apartments (Phase 2) 32211 Riverside Drive 1980 64 63 HDR/R3 (19-24 du/ac)
Lakeside (Lakehouse) Apartments 15195 Lincoln Street 1983 128 52 HDR/R3 (19-24 du/ac)
Broadway Machado Apartments
(Townhomes) 16436 Broadway Street 1987 28 14 MDR/R2 (7-18 du/ac)
Fairview Apartments (Townhomes) 33051 Fairview Street 1976 16 16
LMR (1-6 du/ac)/ No Zone,
Sphere of Influence
Broadstone Rivers Edge Apartments 2088 Lakeshore Drive 2007 184 28 East Lake SP (up to 18 du/ac)
Pottery Court Apartments 295 W. Sumner Avenue 2011 113 111 MDR/R2 (7-18 du/ac)
Mission Trail Apartments 32585 Mission Trail 2020 81 80 East Lake SP (up to 18 du/ac)
Cottages at Mission Trail 32675 Mission Trail 2020 143 142 East Lake SP (up to 18 du/ac)
Total 1,008 733
Source: City of Lake Elsinore, 2020
Due to the availability of undeveloped land and relatively lower costs (compared to other jurisdictions),
housing in Lake Elsinore is more affordable. Many new market-rate units can provide affordability at the
lower income level even at market-rate costs. The vacant residential sites are in areas with lower real
estate costs and the sites are expected to develop as stand-alone multi-family or mixed-use
developments.
In addition to favorable conditions for housing production, the City is working diligently to remove
constraints to housing development and being proactive in encouraging and facilitating development of
both market-rate and affordable housing. Objectives related to housing production in the Housing Plan
(Chapter 6) include assistance for two affordable housing projects in the planning period (Program 7 and
8), pursuing land purchases for residential development, redeveloping tax-delinquent properties, and
consolidating parcels to create two larger, development ready pads in/near Downtown during the
planning period (Program 9, adoption of objective design standards to facilitate high-quality residential
development and compliance with State objectives regarding streamlined project review (Program 12),
and regular outreach to owners/developers of Specific Plans to identify any issue with development
timeframes and to inform owners/developers about available housing funds to assist in the development
of affordable housing (Program 21).
Affordability for Specific Plan Capacity
The City has many approved Specific Plan areas that have significant residential capacity remaining. These
areas have a high level of certainty of development given that they are approved projects and specific
parameters for the quantity and type of development have been established. Development types
authorized by Specific Plans include single-family and multi-family uses (a portion of which are expected
to be developed in a mixed-use context). The Specific Plan areas provide opportunities for development
2021-2029 HOUSING ELEMENT PAGE – 4.9
of market-rate and affordable housing. The developers and/or property owners have not specifically
included affordable units—although any of the projects could be implemented to include affordable
units—and housing costs are not yet known. Development within Specific Plan areas will allow for a wider
range of housing types, sizes, and amenities. For multi-family units in Specific Plan areas, density is used
to make the affordability assumptions. As previously discussed, 24 units per acre is used in place of the 30
units per acre default densities for a variety of reasons discussed under the “Densities Appropriate for
Accommodating Lower Income Housing” heading. Multifamily and mixed-use units with an allowable
density of 24 units per acre are credited toward the very low/low income RHNA. As shown on Table 4.6,
since 2007, three affordable housing developments, with a total of 279 units, have been built in a Specific
Plan area. Two of the City’s most recent affordable housing developments were built within a Specific
Plan. The 81-unit, affordable Mission Trail Apartment built in 2019 and the 143-unit Cottages at Mission
Trail built in 2020 were developed in the East Lake Specific Plan.
Multifamily and mixed-use units with a lower allowable density (most commonly 18 and 20 units per acre)
are credited toward the moderate income RHNA.
Single-family units in Specific Plan areas can be credited against the moderate-income RHNA based on the
cost of single-family homes in Lake Elsinore. While the median home sale price in Lake Elsinore ($409,750
in 2020 according to Corelogic data) is affordable to moderate-income households, some single-family
units may come in at higher prices based on size or amenities. To account for a range of potential home
prices, single-family unit capacity in Specific Plan areas is split evenly between the moderate- and above
moderate-income categories.
Table 4.4: Specific Plan Affordability Assumptions
Affordability Distribution
Low (>50-
80% AMI)
Moderate Income
(>80-120% AMI)
Above Moderate
Income (>120%
AMI) Total
Single-family Units -- 50% 50% 100%
Multi-family/Mixed Use
Units – 24 units per acre 100% --
--
100%
Multi-family/Mixed Use
Units– <24 units per acre -- 100%
--
100%
Table 4.5: Affordable Housing Costs by Household Size and Tenure - 2020
Affordable Payment
(Per State Guidelines)
Maximum Affordable
Price
City of Lake Elsinore
Housing Costs
Income Group/
Household Size
Annual Income
Limits Renter Owner
Home
(purchase
price)
Rental
(per
month)
Moderate Income (80-120% AMI)
1-Person $63,250 $1,581 $1,845 $334,920 $1,376
2-Person $72,300 $1,808 $2,109 $387,409 $1,591
Median condo. price
2020: $390,000
PAGE – 4.10 LAKE ELSINORE GENERAL PLAN
Table 4.5: Affordable Housing Costs by Household Size and Tenure - 2020
Affordable Payment
(Per State Guidelines)
Maximum Affordable
Price
City of Lake Elsinore
Housing Costs
Income Group/
Household Size
Annual Income
Limits Renter Owner
Home
(purchase
price)
Rental
(per
month)
3-Person $81,300 $2,033 $2,371 $436,165 $1,791
Median home price
2020: $409,750
4-Person $90,350 $2,259 $2,635 $485,228 $1,992
5-Person $97,600 $2,440 $2,847 $522,695 $2,146
Assumptions: California Department of Housing and Community Development 2020 income limits; 30 - 35% gross household income
as affordable housing costs (depending on tenure and income level); 20% of monthly affordable cost for taxes and insurance; 10%
down payment, 3% interest rate for a 30-year fixed rate mortgage loan; housing cost include utilities based on Housing Authority of
the County of Riverside Utility Allowance by room size, 2020.
Sources: California Department of Housing and Community Development, 2020; Housing Authority of the County of Riverside, 2020;
MIG, 2020. Rent: U.S. Census 2019 ACS 5-Year Estimates Detailed Tables, Housing Prices: CoreLogic California Home Sale Activity by
City, April 2020.
Residential Site Inventory
The Housing Element Sites Inventory consists of accessory dwelling unit (ADU) projections, remaining
Specific Plan capacity, and vacant residential and mixed-use sites. Together, these sites ensure that the
remaining RHNA can adequately be accommodated during the planning period. The sites have no
identified constraints that would prevent development or reuse during the Housing Element period.
Tables. 4.6 and 4.7 summarizes the sites inventory (see also Figure 4.1 and 4.2).
ADU Projections
A projection of ADU development during the planning period is included in the site inventory. In 2019,
two ADUs were permitted; in 2020, six ADUs were permitted; In 2021 the City has approved nine ADU
applications. The previous demand for ADUs in Lake Elsinore has been minimal due to the availability of
relatively affordable housing. Nonetheless with recent, favorable ADU legislation which has created new
incentives and streamlined processes to build ADUs and the City’s efforts to publicize ADU development,
demand for ADU development is expected to increase. As part of Housing Element implementation, the
City will work to encourage and facilitate development of ADUs (Program 19). The City projects that during
the planning period (8.3 years), at least 50 accessory dwelling units (ADUs) will be developed (6 per year).
The affordability assumptions for the ADUs are based on the Southern California Association of
Governments’ (SCAG) ADU affordability analysis for San Bernardino/Riverside County that have been
approved by the State Department of Housing and Community Development (HCD)2.
2 SCAG estimates an affordability breakdown of ADUs in the San Bernardino/Riverside subregion as follows: 15%
extremely low-income, 8% very low-income, 35% low-income, 35% moderate-income, and 8% above moderate-
income. 6th Cycle Housing Element Update Technical Assistance – ADU Affordability Analysis, August 27, 2020.
2021-2029 HOUSING ELEMENT PAGE – 4.11
Specific Plan Capacity
A considerable portion of Lake Elsinore is designated for specific plan development. The Specific Plans are
intended to allow greater design flexibility and encourage integrated developments. The City has several
Specific Plan areas that have significant residential capacity remaining. These areas have a high level of
certainty of development given that they are approved projects and specific parameters for the quantity
and type of development have been established. Development types authorized by Specific Plans include
single-family and multi-family uses (a portion of which are expected to be developed in a mixed-use
context). The Specific Plan areas provide opportunities for development of market-rate and affordable
housing. As shown on Table 4.6, since 2007, three affordable housing developments, with a total of 279
units, have been built in a Specific Plan area. Combined, the 14 Specific Plan areas identified in this Housing
Element have a remaining capacity of 9,444 units. Table 4.6 also shows the level of entitlement activity
for each plan area. While there are no pending projects, various specific plans have submitted applications
for new or revised tract maps. Specific plan development in the City is ongoing. In 2020, permits were
issued for 146 units in the Villages at Lakeshore Specific Plan. None of the listed Specific Plan areas have
any site restrictions or governmental constraints that would delay development of the identified
remaining capacity. Interviews with developers with working knowledge of the housing market in Lake
Elsinore indicate that the main barrier to development of Specific Plan areas is financial feasibility. Due to
the combination of infrastructure needs (that are no different than the needs of any new, large subdivision
or master plan development in any city) and lower home sales prices in Lake Elsinore (relative to the
region) the interviewees indicated that many projects would not be financially feasible, in other words
would not generates as high of a return on investment for the developer as would development in more
expensive housing markets. Table 4.6 also shows phasing information from the Specific Plan documents.
Most indicate a phasing plan but acknowledge that the timing of residential and commercial development
is a function of market conditions.
The Alberhill Villages Specific Plan area is not included in the inventory. While the Plan has a remaining
capacity of over 8,000 units, active mining activities preclude its development within the planning period.
The Canyon Creek Specific Plan is also not included given the requirement for wildlife conservation in the
Plan area.
Affordability distribution of capacity in Specific Plans is shown on Table 4.4: Specific Plan Affordability
Assumptions. For multi-family units in Specific Plan areas, density is used to make the affordability
assumptions. Multifamily and mixed-use units with an allowable density of 24 units per acre are credited
toward the very low/low income RHNA. Multifamily and mixed-use units with a lower allowable density
(most commonly 18 and 20 units per acre) are credited toward the moderate income RHNA. To account
for a range of potential home prices, single-family unit capacity in Specific Plan areas is split evenly
between the moderate- and above moderate-income categories.
Land use plans for the Specific Plans listed in Table 4.6 are presented in Appendix C.
PAGE – 4.12 LAKE ELSINORE GENERAL PLAN
Table 4.6: Residential Capacity within Specific Plans
Specific Plan
(entitlement
activity
for remaining
capacity)
Year
Adopted or
Last
Amended
Year of
original
approval
Expiration
Date (of
SP, or
TTM, or
anything,
pls
specify)
Total Plan
Capacity/Size
Unit Type Distribution
of Remaining Capacity
MFR Densities and Location Necessary Approvals/Next Steps Phasing or timing requirements Affordability
Distribution
SF MF MU Total
Alberhill Ranch
Specific Plan
(Vesting Tentative
Tract Map)
Partially
Developed
Last
Amendment:
1997
1989 No
expiration
date for
the
Specific
Plan
1,559 units/
1,901 ac.
The completed
567 units were
part of
amendments #2
that moved these
units into the
Murdock Alberhill
Ranch Specific
Plan. Those units
have been built.
Parcelization:
several large
parcels not yet
subdivided.
619 225 120 964 Amendment 1 increased
densities for multifamily and
mixed-use units from 24 du/ac
to
30 du/ac
Amendment 1: Zoning
Regulations lays out the land
use plan, zoning regulations,
and map. Areas identified for
MF residential (16 acres) and
mixed use with MF residential
(89 acres) are included on
Figure 1 and summarized on
Table 2 of the Plan. Multifamily
and mixed uses are in the
southern part of the Plan area
along Nichols Road.
Vesting Tentative Tract Map (VTTM)
35001 (referred to as the “Alberhill
Ridge”) was redesigned to reduce
the number of single-family lots to
939 lots on April 14, 2020. The
number of multi-family residential
units within the new VTTM 35001
has remained the same as the
original VTTM 35001 at 225 multi-
family units and 120 mixed use
residential units. Necessary steps are
the recordation of final map(s),
design review approval and approval
of grading plan(s) and building plans.
From Specific Plan document:
Phase 1: 0 DUs
Phase 2 (3-10 years): 3,200 DUs
Phase 3 (11-15 years): 505 DUs
All residential uses are in Phases 2 and 3; 38%
of residential units are already constructed.
Current Activity:
VTTM 35001 was redesigned in 2020. There
are no constraints to initiating full
development of the Plan within the planning
period.
“The project will be phased out in response to
market demand and a logical and orderly
extension of roadways, utilities, and
infrastructure…residential and commercial
development are primary function of current
market conditions. The timing of the future
development can only be estimated”
SFR units:
Moderate/Above
Moderate
MFR and MU units: Very
Low (based on density)
Canyon Hills
Estates Specific
Plan
(Tentative Tract
Map)
Not Developed
Adopted
2006
2006 No
expiration
date for
the
Specific
Plan
302 units/
246 ac.
No multifamily
uses;
Parcelization:
several large
parcels not yet
subdivided.
302 0 0 302 N/A no MFR Application for revised Tentative
Tract Map (TTM) 34249 submitted
12/9/2021. Revision No. 1 to TTM
No. 34249 proposes to phase the
development of the previously
approved tentative map into four (4)
phases. The first phase 1 proposes a
subdivision of 81.32 acres into 132
single family residential lots, 10
open space lots, one detention
basin, and one park.
RDR 2022-06 proposes the design
and construction of 132 single-family
residential dwelling units located in
Phase 1. The project proposes two
(2)-different product lines which
include six floor plans ranging in size
from 1,793 sq. ft. to 3,291 sq. ft.
No Phasing Plan in SP and able to move
forward with remaining development.
SFR units:
Moderate/Above
Moderate
2021-2029 HOUSING ELEMENT PAGE – 4.13
Table 4.6: Residential Capacity within Specific Plans
Specific Plan
(entitlement
activity
for remaining
capacity)
Year
Adopted or
Last
Amended
Year of
original
approval
Expiration
Date (of
SP, or
TTM, or
anything,
pls
specify)
Total Plan
Capacity/Size
Unit Type Distribution
of Remaining Capacity
MFR Densities and Location Necessary Approvals/Next Steps Phasing or timing requirements Affordability
Distribution
SF MF MU Total
with each product line including 3-
elevation styles. The previously
approved TTM 34249 included a
subdivision of 246 acres into 302
single family residential lots, 12
open space lots, one park, and two
tank sites. Currently under review at
the staff level.
Canyon Hills
Specific Plan
(Tentative Tract
Map)
Mostly
Developed
Last
Amendment:
2021
1989 No
expiration
date for
the
Specific
Plan
4,275 units/
1,969 ac.
Parcelization:
developed area
fully subdivided.
Undeveloped
area consists of
several large
parcels not yet
subdivided.
63 216 0 123 8-15 du/ac townhouse
(developed already)
24 du/ac for MFR units
Figure 2.1 (Amendment 2)
shows the land use plan and
identifies areas for attached
residential development (140.5
acres). Multifamily uses are in
several areas along Canyon Hills
Road.
In 2021, a 9.02-acre site within the
SP was changed from Neighborhood
Commercial to Multifamily 2 with a
density of up to 24 du/ac or up to
216 residential units. 60 of these
units are expected to be
condominiums.
Tract Map No. 38008 for
development of the 9.02-acre site
with 60 detached condominium
units was approved on June 22,
2021, as was the related residential
design review. The final map is
currently in plan check. Remaining
steps for development will be
recordation of final map, approval of
grading and building plans.
From Specific Plan Amendment #2:
Phase 1: 608 SF, 154 MF
Phase 2: 210 SF, 235 MF
Phase 3:508 SF, 227 MF
Phase 4: 148 SF
Phase 5: 434 SF
Phase 6: 133 SF, 243 MF
Phase 7: 382 SF
Open Phase: 548 MF
Phases 1 and 2 done, Phases 3 and 4 graded
and utilities installed
Phase 5 TTM approved
2 phases left. The SP indicates that buildout
rate and order are primarily a function of
market conditions. Attached residential are
available in the phases shown but depend on
market conditions.
SFR units:
Moderate/Above
Moderate
MFR units (60 condos):
Moderate
MFR units (remaining
156 units): Very Low
(based on density)
Cape of Good
Hope Specific
Plan
(no identified
constraints to
immediate
development)
Not Developed
1993 1993 No
expiration
date for
the
Specific
Plan
67 units/
41 ac.
no MFR;
Parcelization:
several large
parcels not yet
subdivided.
68 0 0 68 N/A No MFR From Specific Plan: “Intended to be
completed in a single phase”
No phasing assumed
SFR units:
Moderate/Above
Moderate
The Diamond
Specific Plan
2015 2010 No
expiration
600 units/
87 ac.
0 0 225 225 18 du/ac
From Specific Plan:
Phase 1: PA 2 (DONE)
MU units: Moderate
(based on density)
PAGE – 4.14 LAKE ELSINORE GENERAL PLAN
Table 4.6: Residential Capacity within Specific Plans
Specific Plan
(entitlement
activity
for remaining
capacity)
Year
Adopted or
Last
Amended
Year of
original
approval
Expiration
Date (of
SP, or
TTM, or
anything,
pls
specify)
Total Plan
Capacity/Size
Unit Type Distribution
of Remaining Capacity
MFR Densities and Location Necessary Approvals/Next Steps Phasing or timing requirements Affordability
Distribution
SF MF MU Total
(no identified
constraints to
immediate
development)
Not Developed
date for
the
Specific
Plan
Parcelization:
developed area
fully subdivided.
Undeveloped
area consists of
subdivided larger
parcels
(generally
between 0.5 and
1 acre in size).
Figure 1.4 (Amendment 2)
shows the land use plan and
identifies areas for commercial
mixed-use development (81.6
acres – includes open space).
These areas are located on the
eastern edge of the Plan area
along Mission Trail.
Phase 2 PA-2 (Underway)
Phase 3 PA 3
Phase 4: PA-6
Phase 5: PA-1 (Underway)
Phase 6: PA 5
“The phasing order is not intended to dictate
time sequential development. Concurrent
development may occur depending on
market conditions and infrastructure
development”
A sports complex and commercial project
were approved in 2016/2017, showing
ongoing development of the Specific Plan.
225 residential units are in PA 6 (225), but the
Plan indicates that the developer is not
limited to developing in the phase order
included in the plan.
East Lake Specific
Plan
(no identified
constraints to
immediate
development)
Partially
Developed
2018 1993 No
expiration
date for
the
Specific
Plan
3,640 units/
2,977 ac.
Parcelization:
developed area
fully subdivided.
Undeveloped
area consists of
subdivided larger
parcels generally
around an acre in
size although
some areas of PA
8 have smaller
parcels generally
around 0.2 acres
in size).
0 0 1025 1,025 18 du/ac
Figure 2-1 shows planning
areas. Residential uses are in PA
1, 2, 4, and 8 (which total over
1,300 acres and include a
variety of other land uses as
well as land for
preservation/mitigation).
The project requires
MSHCP (Western Riverside County
Multiple Species Habitat
Conservation Plan) clearance before
being able to move forward.
Next steps after MSHCP clearance
will be
• the processing of the development
applications
• completion of CEQA review
• taking the project to public
hearing.
• Following hearings, the typical
grading plan and building plan
approvals.
From Specific Plan: “…the phasing program
for the East Lake Specific Plan area will be
based upon the anticipated timing of these
Development Targets. As development is
initiated, infrastructure improvements will be
constructed prior to or concurrent with
incremental development in a manner to
maximize cost effectiveness and efficiency.”
Phase 1 – 5 years (by 2022): 2,915 DUs
Phase 2 (2040): 725
MU units: Moderate
(based on density)
Lakeshore Village
Specific Plan
2003 2003 No
expiration
date for
410 units/
37 ac.
0 153 0 153 Attached apartment dwellings
18 du/ac
From Specific Plan: No time sequential
phasing. SFR portion done, MFR remaining.
MFR units: Moderate
(based on density)
2021-2029 HOUSING ELEMENT PAGE – 4.15
Table 4.6: Residential Capacity within Specific Plans
Specific Plan
(entitlement
activity
for remaining
capacity)
Year
Adopted or
Last
Amended
Year of
original
approval
Expiration
Date (of
SP, or
TTM, or
anything,
pls
specify)
Total Plan
Capacity/Size
Unit Type Distribution
of Remaining Capacity
MFR Densities and Location Necessary Approvals/Next Steps Phasing or timing requirements Affordability
Distribution
SF MF MU Total
(no identified
constraints to
immediate
development)
Partially
Developed
the
Specific
Plan
Parcelization:
areas for
detached
residential are
fully subdivided.
The area for
attached
residential is
made up of two
large parcels
totaling 9.8 acres)
Exhibit 6 shows the land use
plan and identifies areas
attached and detached
residential development. There
areas make up most of the plan
area and total 32 acres.
Murdock Alberhill
Specific Plan
(Vesting Tentative
Tract Map)
2008
(amendments
pertain to
changes to
the location
of schools
and parks
only)
1992 No
expiration
date for
the
Specific
Plan.
1,819 units/
511 ac.
Parcelization:
developed area
fully subdivided.
Undeveloped
area consists of
several large
parcels not yet
subdivided.
1,278 541 0 1,819 R-3 20 du/ac (207 units)
R3 24 du/ac (334 units)
Exhibit 1 shows 3 planning
areas and 12 sub areas.
Residential uses are in all but 4
sub areas and total 367 acres.
From Specific Plan: “Over a ten-year period in
response to market demands”. “The timing of
residential and commercial development is a
function of current market conditions. 4
phases – MFR residential is in Phase 1 and 2.
R-3 Phasing:
Phase 1 – 207 units
Phase 2: 334 units
As of December 8, 2020, Vesting Tentative
Tract No. 28214 has 567 completed Single-
Family dwelling units showing ongoing
development of the Specific Plan.
SFR units:
Moderate/Above
Moderate
R3 20 MFR units (207):
Moderate (based on
density)
R3 24 MFR units (334):
Very Low (based on
density)
Nichols Ranch
(Tentative Tract
Map 37305)
Not Developed
2019 2019 No
expiration
date for
the
Specific
Plan
168 units/
72.5 ac.
Parcelization:
several large
parcels not yet
subdivided.
168 0 0 168 N/A No MFR
Figure II-1 shows the land use
plan and identifies areas for SF
residential development
totaling 31 acres. (There is no
multifamily development in this
SP). Residential uses are located
throughout most of the plan
but are generally located along
Nichols Road and Wood Mesa
Court.
Residential Design Review for 168
single-family residential units was
approved on 11/9/2021. No further
entitlement needed for SFR
construction.
Next steps: Recordation of tract map
and approval of grading permits and
building permits
From Specific Plan: Three phases, “Planning
Areas may be developed out of the expected
sequence, or in smaller increments”
Phase 1: 34 units
Phase 2: 134 units
Phase 3 – commercial
SFR units:
Moderate/Above
Moderate
PAGE – 4.16 LAKE ELSINORE GENERAL PLAN
Table 4.6: Residential Capacity within Specific Plans
Specific Plan
(entitlement
activity
for remaining
capacity)
Year
Adopted or
Last
Amended
Year of
original
approval
Expiration
Date (of
SP, or
TTM, or
anything,
pls
specify)
Total Plan
Capacity/Size
Unit Type Distribution
of Remaining Capacity
MFR Densities and Location Necessary Approvals/Next Steps Phasing or timing requirements Affordability
Distribution
SF MF MU Total
North Peak
Specific Plan
(no identified
constraints to
immediate
development)
Not Developed
1999 1991 No
expiration
date for
the
Specific
Plan
1,200 units/
1,786 ac.
Parcelization:
there is a mix of
parcel sizes in the
Plan area. While
several section
shows
parcelization that
range roughly
from 1 to 5 acres
in size and there
are also areas
that are not yet
subdivided.
1,200 0 0 1,200 N/A No MFR
Figure 3 in Amendment 2 shows
the land use plan and identifies
areas for SF residential
development totaling 816
acres. (There is no multifamily
development in this SP).
Residential uses are located
throughout the Plan area.
Next steps would be the submittal
and processing of new development
application, such as tentative tract
maps. Other steps are the same as
described above.
From Specific Plan: Over 17 years Phase 1 and
2
Phase 1A 89 acres of res
Phase 1B 62 acres of residential
Phase 2A 97 acres residential
Phase 2B 108 acres residential
SFR units:
Moderate/Above
Moderate
Ramsgate Specific
Plan
(Tentative Tract
Map)
Partially
Developed
2008 1984 No
expiration
date for
the
Specific
Plan
Tentative
Tract Nos.
32537 &
37382
totaling
272 SFR
lots
currently
active
until May
2023.
2,759 units/
1,366 ac.
Parcelization:
developed area
fully subdivided.
Undeveloped
area consists of
several large
parcels not yet
subdivided.
947 0 0 947 N/A No Remining MFR capacity
Exhibit 3 shows the land use
plan and identifies areas for
residential development.
Residential uses are in the
northernmost portions of the
Plan area where there is access
from Highway 74 and several
smaller roads. There is no
remining multifamily residential
capacity.
Necessary steps include recordation
of final map(s), approval of the
design review application and
approval of grading permits and
building permits.
Recorded Tract Map No. 30698 with
151 SFR, received Design Review
approval on May 25, 2021.
Necessary steps are approval of
grading plans and building permits.
Specific Plan
Approximates over 20 years based on
infrastructure and market demand. 66% of
Specific Plan developed and able to move
forward with remaining development
SFR units:
Moderate/Above
Moderate
Spyglass Ranch
Specific Plan
(Tentative Tract
Map)
2015 2008 No
expiration
date for
the
1,035 units/
259 ac.
745 290 0 1,035 15-20 du/ac
Tentative Tract Map 35337
approved in 2015 for entire Specific
Plan. Currently working to record
final map for first phase.
From Specific Plan: 3 phases approx. 10 years,
Currently working to record final map for first
phase.
SFR units:
Moderate/Above
Moderate
2021-2029 HOUSING ELEMENT PAGE – 4.17
Table 4.6: Residential Capacity within Specific Plans
Specific Plan
(entitlement
activity
for remaining
capacity)
Year
Adopted or
Last
Amended
Year of
original
approval
Expiration
Date (of
SP, or
TTM, or
anything,
pls
specify)
Total Plan
Capacity/Size
Unit Type Distribution
of Remaining Capacity
MFR Densities and Location Necessary Approvals/Next Steps Phasing or timing requirements Affordability
Distribution
SF MF MU Total
Not Developed
Specific
Plan
Parcelization:
several large
parcels not yet
subdivided.
Figure III-1 shows the land use
plan and identifies areas for
residential development.
Residential uses are located
throughout the Plan and total
156 acres (14.5 acres are for
multifamily residential uses).
Multifamily uses are in the
southern portion of the Plan
area at the intersection of
Camino Del Norte and a
proposed new road that will
provide access into the Plan
area.
All MFR in Phase 1 MFR units: Moderate
(based on density)
Terracina
(Vesting Tentative
Tract Map 36557,
Rev. 1)
Not Developed
2015 2015 No
expiration
date for
the
Specific
Plan
452 units/
150.8 ac
Parcelization:
several large
parcels not yet
subdivided.
452 0 0 452 N/A No MF
Exhibit IV-1 shows the land use
plan and identifies areas for
residential development.
Residential uses are located
throughout the Plan and total
151 acres. There are no
multifamily residential uses in
this Specific Plan.
Necessary steps include recordation
of final map(s), approval of the
design review application and
approval of grading permits and
building permits.
From Specific Plan: “Phasing of development
must be flexible to meet market demands
and sequence of infrastructure”
Revised SP Phasing Plan
Phase 1: 73 units
Phase 2: 84 units
Phase 3: 21 units
Phase 4: 94 units
Phase 5: 89 units
Phase 6: 38 units
Phase 7: 51 units
Revision No. 1 to Vesting Tentative Tract No.
36557, approved July 23, 2019, reduced the
total number of SFR lots to 450. Design
Review for 402 SFR submitted and under staff
review.
SFR units:
Moderate/Above
Moderate
Tuscany Hills
Specific Plan
(Tentative Tract
Map)
2005
(addresses
the northern
portion of the
site where
the remaining
1990 No
expiration
date for
the
Specific
Plan.
1,847 units/
1,010 ac.
Parcelization:
developed area
fully subdivided.
807 0 0 807 N/A No MF
Exhibit 8B shows the land use
plan for the undeveloped
portion of the Plan (north
From Specific Plan: Development of the last
phase (2005 amendment) over 5 years.
“Residential development is primarily a
function of market conditions. Timing of
development can only be estimated…”
SFR units:
Moderate/Above
Moderate
PAGE – 4.18 LAKE ELSINORE GENERAL PLAN
Table 4.6: Residential Capacity within Specific Plans
Specific Plan
(entitlement
activity
for remaining
capacity)
Year
Adopted or
Last
Amended
Year of
original
approval
Expiration
Date (of
SP, or
TTM, or
anything,
pls
specify)
Total Plan
Capacity/Size
Unit Type Distribution
of Remaining Capacity
MFR Densities and Location Necessary Approvals/Next Steps Phasing or timing requirements Affordability
Distribution
SF MF MU Total
southern portion
constructed by
multiple builders
over several years
Partially
Developed
capacity is at,
the southern
section is
built)
Tentative
Tract Map
No.
33725, for
204
single-
family
units has
an
expiration
date of
March 26,
2023.
Undeveloped
area consists of
several large
parcels not yet
subdivided.
section) and identifies areas for
residential development.
Residential uses are located
throughout the Plan (north
section) and total 213 acres.
There are no multifamily
residential uses in the
undeveloped areas of the
Specific Plan.
Total 6,649 1,425 1,370 9,444
2021-2029 HOUSING ELEMENT PAGE – 4.19
Vacant Residential Sites
The vacant sites inventory includes 18 HDR/R-3 sites and 10 RMU sites totaling 104.7 acres; combined,
these sites yield a realistic capacity of 2,255 units. Table 4.7 lists the sites and provides detailed
descriptions of each.
Table 4.7: Vacant Land Inventory
Site #
Size
(acres)
# of
APNs
Allowed
Density
Realistic
Capacity Notes
R3-1 1.97 1 19-24 du/ac 43 units
Vacant
Very low/low-income affordability
Adjacent to a commercially zoned area
R3-2 1.50 6 19-24 du/ac 34 units
Vacant
Very low/low-income affordability
Most (1.1 acres) of site under common ownership
Subject to AB 1397
R3-3 3.60 17 19-24 du/ac 79 units
Vacant
Very low/low-income affordability
Half (1.8 acres) of site under common ownership
Subject to AB 1397
R3-4 0.54 3 19-24 du/ac 12 units
Vacant
Very low/low-income affordability
Under common ownership
Subject to AB 1397
R3-5 4.04 25 19-24 du/ac 85 units
Vacant
Very low/low-income affordability
Most of site (3 acres) owned by two owners
Subject to AB 1397
R3-6 1.27 6 19-24 du/ac 29 units
Vacant
Very low/low-income affordability
Most (1.1 acres) of site under common ownership
Subject to AB 1397
R3-7 1.60 7 19-24 du/ac 34 units
Vacant
Very low/low-income affordability
Under common ownership
Subject to AB 1397
R3-8 1.04 1 19-24 du/ac 23 units
Vacant
Very low/low-income affordability
Under common ownership
Subject to AB 1397
R3-9 0.79 4 19-24 du/ac 17 units
Vacant
Very low/low-income affordability
Under common ownership
Subject to AB 1397
PAGE – 4.20 LAKE ELSINORE GENERAL PLAN
Table 4.7: Vacant Land Inventory
Site #
Size
(acres)
# of
APNs
Allowed
Density
Realistic
Capacity Notes
R3-10 0.56 3 19-24 du/ac 11 units
Vacant
Very low/low-income affordability
Under common ownership
R3-11 0.59 3 19-24 du/ac 13 units
Vacant
Very low/low-income affordability
2 owners including City of Lake Elsinore (0.21 acres)
Located adjacent to a mobile home park and a new
Specify Plan aimed at revitalization and
intensification.
Subject to AB 1397
R3-12 0.81 4 19-24 du/ac 18 units
Vacant
Half (0.47 acres) of site under common ownership
Easily accessible from I-15 and near a future
commercial area
Very low/low-income affordability
Subject to AB 1397
R3-13 1.21 1 19-24 du/ac 27 units
Vacant
Easily accessible from I-15 and near a future
commercial development
Very low/low-income affordability
Subject to AB 1397
R3-14 4.55 4 19-24 du/ac 100 units
Vacant
Located adjacent to higher density residential
development and future commercial area
Under common ownership
Very low/low-income affordability
Subject to AB 1397
R3-15 4.35 1 19-24 du/ac 96 units
Vacant
Located adjacent to a mobile home park
Located across the street from a future 146-unit
condominium development.
Very low/low-income affordability
Subject to AB 1397
R3-16 13.16 1 19-24 du/ac 290 units
Vacant
Located adjacent to a mobile home park
Located across the street from a future 146-unit
condominium development.
Very low/low-income affordability
Subject to AB 1397
R3-17 3.47 1 19-24 du/ac 76 units
Vacant
Very low/low-income affordability
Subject to AB 1397
2021-2029 HOUSING ELEMENT PAGE – 4.21
Table 4.7: Vacant Land Inventory
Site #
Size
(acres)
# of
APNs
Allowed
Density
Realistic
Capacity Notes
R3-18 14.31 1 19-24 du/ac 268 units
Vacant
Located along a major corridor (CA-74) for easy
access
Multi-family development opportunity located in a
single-family residential area and near a future
commercial area
Very low/low-income affordability
Subject to AB 1397
MSHCP habitat set-aside and ingress road required
– 15.85-acre site, only 12 to 14.31 acres
developable
RMU-1 4.96 1 19-24 du/ac 109 units
Vacant
Very low/low-income affordability
Subject to AB 1397
RMU-2 5.03 3 19-24 du/ac 110 units
Vacant
Very low/low-income affordability
Under common ownership
Subject to AB 1397
RMU-3 8.25 1 19-24 du/ac 181 units
Vacant
Very low/low-income affordability
Subject to AB 1397
RMU-4 5.99 11 19-24 du/ac 132 units
Vacant
Located across the street from a high-density
residential development, next to Eastlake Specific
Plan mixed-use overlay area with capacity for 750
residential units and adjacent to the Downtown
Elsinore Specific Plan mixed-use area.
Very low/low-income affordability
Most (4.56 acres) of site under common ownership
Subject to AB 1397
RMU-5 3.26 25 19-24 du/ac 73 units
Vacant
Easily accessible from I-15 and near a future
commercial development
Very low/low-income affordability
Most (2.36 acres) of site under common ownership
Subject to AB 1397
RMU-6 5.26 44 19-24 du/ac 117 units
Vacant
Easily accessible from I-15 and near a future
commercial development
Very low/low-income affordability
Most (3.91 acres) of site under common ownership
Subject to AB 1397
PAGE – 4.22 LAKE ELSINORE GENERAL PLAN
Table 4.7: Vacant Land Inventory
Site #
Size
(acres)
# of
APNs
Allowed
Density
Realistic
Capacity Notes
RMU-7 1.08 9 19-24 du/ac 26 units
Vacant
Easily accessible from I-15 and near a future
commercial development
Very low/low-income affordability
Most (0.59 acres) of site under common ownership
Adjacent to underutilized land for potential larger
site
RMU-8 8.76 9 19-24 du/ac 192 units
Vacant
Very low/low-income affordability
Most (5.61 acres) of site under common ownership
Located next to Eastlake Specific Plan mixed-use
overlay with capacity for 750 residential units and
adjacent to future commercial development.
RMU-9 0.56 3 19-24 du/ac 11 units
Vacant
Very low/low-income affordability
Under common ownership
Located in residential areas across the street from
an R-3 residential area
RMU-10 2.21 1 19-24 du/ac 49 units
Vacant
Very low/low-income affordability
Located next to a mobile home park and a high-
density residential area. Across the street from a
commercial mixed-use area.
Total 104.71 196 2,255 units
Assembly Bill 1397
Consistent with updated Housing Element law (Assembly Bill 1397) related to the suitability of small and
large sites, the lower-income sites inventory presented in this section is made up predominately of sites
between 0.5 and 10 acres in size, as the State has indicated these size parameters are most adequate to
accommodate lower-income housing need. Individual parcels under 0.5 acres in size are included only if
they are part of a larger site. Many of the sites comprise multiple parcels. Lot consolidation in Lake Elsinore
is not a constraint to housing development. Since 2014, 21 parcel mergers have occurred. The City has
added incentives to encourage lot consolidation in the text of the Downtown Elsinore Specific Plan and is
considering expanding those incentives citywide (see Program 7 in the Housing Plan). To streamline the
process of merging continuous parcels the City adopted a Voluntary Merger Ordinance in 2016 (Lake
Elsinore Municipal Code Chapter 16.22 Voluntary Merger of Continuous Parcels). Under the ordinance,
the Director of Community Development and the City Engineer may authorize the merger of continuous
parcels or units of land in which at least one parcel fails to meet the minimum lot size or otherwise is not
suitable for development.
2021-2029 HOUSING ELEMENT PAGE – 4.23
Two HDR sites over 10 acres in size (but smaller than 15 acres) are included in the inventory. In Lake
Elsinore, development of lower income affordable housing on large sites is achievable; one such project
was completed during the prior planning period. In 2020, the Cottages at Mission Trail, a 142-unit, all-
affordable development, was constructed on a 19.5-acre site, much larger than the identified large sites
(13.16 and 14.31 acres).
The sites inventory includes vacant properties with various land use designations. AB 1397 establishes
criteria for inventorying any vacant site included in two or more consecutive planning periods (e.g., fourth
cycle 2008-2014 and fifth cycle 2014-2021 housing elements). Per the law, such sites, if included in the
inventory, must allow residential use by right if a development proposal has at least 20 percent of the
units affordable to lower income households. Sites that are subject to the provisions of AB1397 are
indicated in Table 4.7.
Sites Inventory Summary
Table 4.8 summarizes the sites available to address the 2021-2029 RHNA for the City of Lake Elsinore. The
approved projects and site inventory identify capacity for 11,875 units, 3,119 units of which are on sites
suitable for development of lower-income housing. Overall, the City can adequately accommodate—and
has excess capacity for—the full RHNA for 2021-2029.
Table 4.8: Sites Inventory Summary
Ex./Very
Low (0-50%
AMI)
Low (>50-
80% AMI)
Moderate
Income (>80-
120% AMI)
Above
Moderate
Income
(>120%
AMI) Total
RHNA 2021-2029 Final RHNA 1,878 1,099 1,134 2,570 6,681
APPROVED PROJECTS Building Permits issued since 06/30/21 -- -- -- 36 36
Tessera Condominium Project* -- -- 90 -- 90
subtotal -- -- 90 36 126
SITES INVENTORY:
Estimated ADU Production* 12 17 17 4 50
Specific Plan Capacity** 835 -- 5,282 3,327 9,444
HDR Sites** 1,255 -- -- -- 1,255
RMU Sites** 1,000 -- -- -- 1,000
subtotal 3,102 17 5,299 3,331 11,749
TOTAL APPROVED PROJECTS & SITES Total 3,102 17 5,389 3,367 11,875
REMAINING RHNA (+shortfall/-surplus) -1,224 +1,082 -4,255 -797 Notes:
PAGE – 4.24 LAKE ELSINORE GENERAL PLAN
*SCAG estimates an affordability breakdown of ADUs as follows: 15% extremely low-income, 8% very low-income, 35% low-income, 35%
moderate-income, and 8% above moderate-income. 6th Cycle Housing Element Update Technical Assistance – ADU Affordability Analysis,
August 27, 2020.
**Affordability based on density.
2021-2029 HOUSING ELEMENT PAGE – 4.25
PAGE – 4.26 LAKE ELSINORE GENERAL PLAN
2021-2029 HOUSING ELEMENT PAGE – 4.27
Site Infrastructure and Constraints
The sites inventoried in this Housing Element have residential land use designations and zoning in place
to accommodate the RHNA. No General Plan amendment or changes to the zoning map are required.
Few constraints would impede development of new housing units on the identified sites. Potential
environmental constraints to future development of sites are reflected in the identified site capacity. For
example, Site R3-18 is subject to the Western Riverside County Multiple Species Habitat Conservation Plan
(MSHCP) set-aside requirement; thus, only developable acreage is included in the capacity calculation.
The City requires that project applications for new development be reviewed for adequate infrastructure.
Applications are evaluated on a case-by-case basis to ensure capacity exists to service new developments.
Specific plan areas have infrastructure provision plans in place. State law requires a detailed identification
of infrastructure needed to support planned land uses, including the methods to be used for infrastructure
financing and a program for implementation.
Full urban-level services are available to each site in the inventory. Specifically, water and sewer services
are available or are programmed to be made available for all the sites in the inventory. Site development
potential indicated in the sites inventory is consistent with development capacity reported in the General
Plan. The General Plan EIR accounts for future build-out of the City of Lake Elsinore. The Elsinore Valley
Municipal Water District (EVMWD) provides water, wastewater, and reclaimed water service to most of
the City. Lake Elsinore’s RHNA can be accommodated within the existing zoning and General Plan
designated parcels in the City and therefore would not create an impact on water services beyond that
identified and analyzed in the General Plan EIR.
All sites have access to full dry utilities. The Southern California Gas Company provides natural gas
services, and Southern California Edison provide electric power. Telephone service in the local area is
provided by Verizon. Cable service in the area is provided by Spectrum, although there are alternative
services available for the provision of cable and internet services.
Financial and Administrative Resources
Primary responsibility for implementation of the City’s housing programs and activities lies with the City
Manager, the Community Development Department, including the Planning and Building Divisions, and
the Engineering Department. The primary responsibilities of the Community Development Department
include overall implementation of the General Plan through the Zoning and the Subdivision Ordinances,
as well as implementing Specific Plans. In addition, the Community Development Department is
responsible for long-range planning and physical development. The department ensures the City's viability
through enforcement of land use, construction, health, safety, and environmental regulations.
Several financial resources are available to the City and City residents:
• The City of Lake Elsinore participates in HUD federal CDBG funding programs through the County
of Riverside. The County of Riverside is the lead agency in administering HUD funding programs
PAGE – 4.28 LAKE ELSINORE GENERAL PLAN
for the County and 15 participating cities, including Lake Elsinore. Service providers with proposed
activities that provide a primary benefit to any of the 15 cooperating cities participating in the
County's CDBG program can apply for funding.
• As a successor to the former Redevelopment Agency’s affordable housing functions, the City has
Low- and Moderate-Income Housing Asset Funds (LMIHAF) to increase, improve and preserve the
community's supply of affordable housing. Future revenues to the LMIHAF will be paid as an
enforceable obligation from Real Property Tax Trust Fund (RPTTF) monies pursuant to the
Successor Agency’s Recognized Obligation Payment Schedule (ROPS). In a lawsuit filed by the
Agency and the City against the California Department of Finance and others, Case Number 34-
2017-80002762, the California Superior Court for the County of Sacramento confirmed the
enforceability of a Housing Fund Loan agreement as an enforceable obligation of the Successor
Agency to be recognized by the California Department of Finance, the Riverside Auditor-
Controller, and the Oversight Board on the Agency’s ROPS. The outstanding balance due to the
LMIHAF as reflected on the Successor Agency’s 2021-22 ROPS is $27,012,366. These funds will be
paid over time from available RPTTF.
• In 2021, the City was awarded an EPA Building Blocks for Sustainable Communities Grant. The
grant is for technical assistance to spur development in the Downtown area. The program will
include analysis of the City's existing assets and resources to ensure the City maximizes its
investments and programs for the Downtown to encourage outside investment.
• Qualified Lake Elsinore homebuyers can obtain assistance through the California Housing Finance
Agency’s First-Time Homebuyer Program. Additionally, the Riverside County Economic
Development Agency (EDA) offers a Mortgage Credit Certificate Program to eligible Lake Elsinore
homebuyers. Through the Mortgage Credit Certificate Program, qualified low-income
homebuyers can receive a federal income tax credit equal to 20% of the interest paid on their
primary mortgage; the remaining 80% of the interest can be taken by the homebuyer as a tax
deduction.
• In September 2020, the City was awarded a $3.1 million grant through Project Homekey to
purchase and rehabilitate housing, including hotels, motels, vacant apartment buildings, and
other properties, and convert them into permanent, long-term housing for people experiencing
or at risk of being homelessness. This funding was used to reimburse the City for most of its
purchase costs and to complete renovations to The Anchor, a crisis stabilization housing
development, such as utility work, safety improvements, ADA accommodations, landscaping, and
furnishings for each unit. In addition, this grant provided the City with $336,000 toward operating
expenses through June 2022.
• Lake Elsinore homeowners are eligible for the EDA Home Repair Program through the County of
Riverside EDA, as well as the EDA Home Rehabilitation Program. The Home Repair Program offers
qualified Lake Elsinore homeowners up to $6,000 in grant funding for eligible home repairs,
whereas the Home Rehabilitation Program offers up to $20,000 for eligible home repairs.
2021-2029 HOUSING ELEMENT PAGE – 4.29
• The Housing Authority of the County of Riverside administers the development, rehabilitation,
and financing of affordable housing programs. The primary mission of the Housing Authority is to
provide affordable decent, safe, and sanitary housing opportunities to low- and moderate-income
families while supporting programs to foster economic self-sufficiency. The Housing Authority
provides two basic types of rental assistance. The largest is the Section 8 Housing Choice Voucher
(HCV) program. HCV participants pay between 30 and 40% of their monthly income for rent.
Depending on the income of the family, the Housing Authority may pay all or a very small portion
of the rent.
PAGE – 4.30 LAKE ELSINORE GENERAL PLAN
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2021-2029 HOUSING ELEMENT PAGE – 5.1
lake elsinore general plan
housing element
5. REVIEW OF 2014-2021 PROGRAM
ACCOMPLISHMENTS
This chapter analyzes program performance from the 2014-2021 Housing Element programs. State law
(California Government Code Section 65588[a]) requires each jurisdiction to review its housing element
as frequently as appropriate and evaluate:
• The appropriateness of the housing goals, objectives, and policies in contributing to the
attainment of the state housing goal;
• The effectiveness of the Housing Element in attainment of the community’s housing goals and
objectives; and
• The progress in implementation of the Housing Element.
This evaluation provides useful information regarding which programs have achieved stated objectives
and whether these programs continue to be relevant to addressing current and future housing needs in
Lake Elsinore. The evaluation provides the basis for recommended modifications to policies and programs
and the establishment of new housing objectives. Following the evaluation table, a summary of quantified
objective performance is provided.
The City has made progress through project implementation in addressing the housing needs of the
special populations (Program 7: Affordable housing sites, Program 10: Special needs housing partnerships,
Program 11: Homeless need). In September 2020, the City was awarded a $3.1 million grant to purchase
and rehabilitate a 14-unit crisis stabilization/transitional housing project to provide temporary housing to
extremely low-income persons who are homeless or at risk of homelessness. The Anchor was opened in
December 2020 and provides housing and supportive services to up to 20 individuals. City staff have also
been active participants in organizing, hosting volunteer sites, and accompanying teams during the
Homeless-Count-in-Time Program. On May 23, 2017, the City Council approved the creation of the
Homeless Task Force to further the City’s efforts to address homelessness. The Task Force is a working
group of community leaders who meet every other week to identify short- and long-term solutions. The
Task Force has been instrumental in developing the “Housing LE Program.” In cooperation with the non-
profit organization SWAG (Social Work Action Group), the City has secured Homeless Emergency Aid
PAGE – 5.2 LAKE ELSINORE GENERAL PLAN
Program funds to provide direct assistance to house persons who are homeless or at risk of homelessness.
The Task Force has successfully conducted homeless street outreach and community engagement,
provided rental assistance and housing subsidies, and case management and supportive services.
Table 5.1: 2014-2021 Program Accomplishments
2014-2021 Housing Element
Program Program Performance and Continued Appropriateness
PROGRAM 1: CODE ENFORCEMENT
Enforce City codes to remedy
unsightly or hazardous conditions in
residential neighborhoods. Provide
information and technical
assistance to property owners
regarding housing maintenance
The City ordinance and procedure governing nuisance abatement allow
homeowners an opportunity to repair their properties. Nuisance
Abatement Board hearings are held to resolve appeals only.
Code compliance is an important City goal; this program is continued in
the 2021-2029 Housing Element with modified objectives to reflect
funding and staffing levels.
PROGRAM 2: REMOVAL OF
SUBSTANDARD HOUSING
Eliminate, through demolition,
unsafe and dilapidated housing
units that cannot be rehabilitated.
During the 2014 – 2020 period, twelve homes were demolished through
the City’s Structure Abatement Program procedures because of fire
damage that resulted in dangerous conditions that could not be
rehabilitated.
This program is still necessary, and an updated version of this program
will be included in the Housing Element as part of a larger program
addressing abandoned and substandard housing.
PROGRAM 3: ABANDONED
PROPERTIES
Enforce the City’s Abandoned
Residential Property Registration
Program (Ordinance 1252) and
encourage owners of houses and
properties that become vacant and
abandoned due to foreclosure to
maintain or rehabilitate the
properties.
Bank/mortgage holders have registered abandoned properties with the
City’s Building Department, enabling Code Enforcement to inspect the
active cases periodically and ensure the properties are being maintained
and no violations exist until sale and occupancy of the property. During
the 2014-2020 period, a total of 397 foreclosed homes were registered,
broken down as follows:
Year Number of Properties
2014 105
2015 99
2016 68
2017 32
2018 32
2019 39
2020 22
This program is still necessary, and an updated version of this program
will be included in the 2021-2029 Housing Element as part of a larger
program addressing abandoned and substandard housing.
2021-2029 HOUSING ELEMENT PAGE – 5.3
Table 5.1: 2014-2021 Program Accomplishments
2014-2021 Housing Element
Program Program Performance and Continued Appropriateness
PROGRAM 4: HOUSING
REHABILITATION PROGRAMS
CDBG Home Repair Program: Utilize
CDBG or other funds, as available,
to provide financial assistance for
minor repairs of homes owned and
occupied by lower-income
residents. Eligible repairs include
plumbing, electrical, painting,
carpentry, roof repairs, and
masonry work. Provide assistance
to approximately 10-15 very low-
and low-income households.
In-Lieu Fee Housing Rehabilitation
Loan
Program: Institute a pilot housing
rehabilitation program funded with
in-lieu fees received, providing
loans and/or grants up to $5,000
for exterior improvements. Provide
assistance to approximately 10 very
low- and low-income households.
Through administration by the County of Riverside, in 2019 and 2020 a
portion of the City’s CDBG allotment was used by the Habitat for
Humanity Critical Home Maintenance & Repairs program.
The CHIP (City Home Improvement Program) adopted in 2013 was
successfully implemented in 2014 to provide home improvement grants
to 8 low-income homeowners. The CHIP is not currently being
administered due to lack of available funding; this portion of the program
will be removed.
Receivership Program is ongoing and successful. The City’s Building
Department implemented a Receivership Program in 2014 with the goal
of rehabilitating at-risk residential properties. Instead of demolishing
homes and leaving vacant lots in their place, the City works with a court-
appointed receiver to remodel the homes for sale, and to recoup
attorney and rehab costs. In 2014, two homes were completed and sold
to new buyers. In 2015, there were two homes, in 2016 one home and in
2017 seven homes. In 2018, 2019 and 2020, no homes were identified,
remodeled, completed, and sold to new buyers. As of July 2021, there
are four properties ready for receivership.
Housing rehabilitation is important to the City, and this program will be
continued in the 2021-2029 Housing Element with modified objectives to
reflect potential future funding levels and remove the CHIP program.
PROGRAM 5: ENERGY
CONSERVATION
Implement the Climate Action Plan
(CAP) to reduce local greenhouse
gas (GHG) emissions in accordance
with State law. Carry out the
housing related strategies and
measures identified in the CAP to
meet GHG emissions targets over
the next two decades.
The City Building Department accepts solar system plan checks “over-the-
counter,” with review in house, and with permits issued within three
business days. This simplified, efficient process eliminates governmental
constraints and encourages the use of alternative fuel sources.
In 2020, 839 building permits for solar energy systems were issued; 413
permits were completed in 2019, 670 in 2018, 726 in 2017, 563 in 2016,
and 761 in 2015.
In 2017 the City supported the Western Riverside Energy Leader
Partnership for the second year, called the 2017 Holiday LED Light
Exchange and FREE Energy Efficiency Kit program made available by the
Council of Governments.
An updated version of this program is continued in the 2021-2029
Housing Element and will include programmatic actions to ensure
compliance with AB 2188, which requires local governments to adopt a
solar ordinance by creating a streamlined permitting process.
PAGE – 5.4 LAKE ELSINORE GENERAL PLAN
Table 5.1: 2014-2021 Program Accomplishments
2014-2021 Housing Element
Program Program Performance and Continued Appropriateness
PROGRAM 6: DENSITY BONUS
Encourage the use of the Density
Bonus Ordinance to obtain higher
densities in residential
developments and increase the
availability of affordable housing
units in exchange for exceptional
architecture and amenities. A copy
of the Density Bonus Ordinance
shall be attached to Residential
Design Review Applications.
The City’s Density Bonus Ordinance is included with all Residential Design
Review application forms and is suggested to potential developers of
multiple-family housing.
No applications were received requesting a density bonus and no project
with a density bonus was approved in 2014, 2015, 2017, 2018, 2019 or
2020. The City received and approved one application for Density Bonus
in 2016 for a project of 150 dwelling units, which met the qualifications
described in the Residential Mixed-Use Zone.
Affordable housing incentive tools are important. This program is
continued in the 2021-2029 Housing Element with specific focus on
updating the City’s density bonus ordinance to comply with State law.
PROGRAM 7: AFFORDABLE
HOUSING SITES
Make available on the City website
and distribute to interested
developers a list of City-owned
property suitable for affordable
housing projects and the Housing
Element which includes a
Residential Sites Inventory and Site
Suitability Analysis. Update the
City-owned property list annually.
Provide Habitat for Humanity –
Inland Valley with information on
residential sites suitable for
affordable housing development.
The City is updating its housing sites inventory and will continue to reach
out to affordable housing developers and post the updated inventory to
the City’s website.
City staff has coordinated with Habitat for Humanity – Inland Valley with
information on three locations within the City that could accommodate
affordable housing.
An updated version of this program is included in the 2021-2029 Housing
Element as an Adequate Sites program consistent with State law.
2021-2029 HOUSING ELEMENT PAGE – 5.5
Table 5.1: 2014-2021 Program Accomplishments
2014-2021 Housing Element
Program Program Performance and Continued Appropriateness
PROGRAM 8: AFFORDABLE
HOUSING PARTNERSHIPS
Work with agencies and
organizations to increase affordable
housing activities such as
construction, rehabilitation, or
financial assistance to renters and
owners. Provide a link to available
housing programs for residents and
developers on the City website.
Partnerships and programs to
continue and/or pursue include but
are not limited to: County of
Riverside Housing Authority
(City/County Mortgage Revenue
Bonds), County of Riverside
Economic Development Agency
(First Time Home Buyer and
Mortgage Certificate Program),
California Housing Finance Agency
(CalHFA), Habitat for Humanity.
Endeavor to facilitate at least one
affordable housing project during
the planning period.
The City has an Affordable Housing web page as part of its website. The
Affordable Housing page includes links to available housing programs for
low- and moderate-income homeowners and first-time home buyers,
including Riverside County EDA and CHFA First Time Homebuyer
Programs, the County Mortgage Credit Certificate Program, and County
EDA Home Repair Program. In addition, the website provides links to
affordable housing projects in the City that offer affordable housing to
very low-, low- and moderate-income tenants.
The City continues to participate in the Riverside County Mortgage Credit
Certificate (MCC) Program, which is implemented by the County
Economic Development Agency, and entitles home buyers to reduce the
amount of their federal income tax liability for an amount equal to 20%
of the mortgage interest paid during the year on their primary mortgage
loan. The remaining 80% of the interest can be taken by the homebuyer
as a tax deduction. This provides the potential homebuyer the ability to
qualify more easily for a home loan, qualify for a larger loan amount, or
improve the borrower’s qualifying debt ratio. Since 2015, 15 Lake
Elsinore households have used this program.
In 2017, the City partnered with private developers to approve two
affordable housing projects: the Cottages at Mission Trail and the Mission
Trail Apartments. Both projects are located on properties acquired by the
City as affordable housing opportunity sites. The Mission Trail
Apartments project was approved, project financing closed, and
development commenced in 2018. This project includes 80 deed-
restricted affordable rental units, including 21 very low-income and 59
low-income units. The developments have been completed. The
Cottages at Mission Trail project was approved in 2018. The Cottages
project will provide 142 deed-restricted affordable rental units, including
20 very low-income and 122 low-income units. Both projects include one
manager unit, bringing the aggregate new rental units in these projects
to 224 units (222 affordable housing units) constructed. Building permits
were issued for all the units in the Mission Trail Apartments project and
for 48 units in The Cottages project during 2019. Building permits for the
balance of the units in The Cottages projects were issued in 2020 and
Certificate of Occupancy were issued in 2021.
Encouraging development of housing affordable to all income groups
throughout the City is a central goal for this Housing Element. This
program will remain in the 2021-2029 Housing Element as part of a larger
affordable housing program.
PAGE – 5.6 LAKE ELSINORE GENERAL PLAN
Table 5.1: 2014-2021 Program Accomplishments
2014-2021 Housing Element
Program Program Performance and Continued Appropriateness
PROGRAM 9: RENTAL ASSISTANCE
Continue to support the Section 8
Housing Choice Voucher Program.
Direct eligible households to the
Section 8 rental assistance program
managed by the Housing Authority
of Riverside County. Provide
information to landlords regarding
participation in the Section 8 Rental
Assistance Program.
City staff continues to provide referrals to the Riverside County Housing
Authority for possible Section 8 rental assistance. The City updated its
Affordable Housing webpage to include a link to the County Housing
Authority’s Section 8 Housing Choice Voucher Program and Section 8
project based rental opportunities spread throughout Riverside County.
The City prides itself in helping provide affordable housing opportunities
to area residents. As a courtesy, a list of housing developments that offer
a portion of their units with affordability restrictions from the City, or
units with reduced rents for low-income residents, is available on the
City’s website.
Rental assistance resources are limited; as such, this important program
will remain in the 2021-2029 Housing Element.
PROGRAM 10: SPECIAL NEEDS
HOUSING PARTNERSHIPS
Encourage non-profit organizations
to pursue funding for the
construction of elderly, disabled, or
other special needs housing.
Provide referrals to programs such
as the U.S. Department of Housing
and Urban Development (HUD)
Section 202 Supportive Housing for
the Elderly Program and the
California Department of Mental
Health/CalHFA Mental Health
Services Act (MHSA) Housing
Program.
The City did not receive any inquiries from non-profit organizations
interested in developing affordable housing for special needs residents.
Project feasibility funded with HUD program funding sources generally
require additional funding—often from low- and moderate-income
housing funds. With the elimination of redevelopment, the City is
diligently working to secure affordable housing funds available to assist
new affordable housing development aimed at serving the City’s special
needs population.
In September 2020, the City was awarded a $3.1 million grant through a
State program to purchase and rehabilitate housing, including hotels,
motels, vacant apartment buildings and other properties, and convert
them into permanent, long-term housing for people experiencing or at
risk of experiencing homelessness. The funding was used for purchase
costs and renovations to The Anchor, a crisis stabilization housing
complex owned by the City and operated by Social Work Action Group
(SWAG) and serving chronic homeless individuals from Lake Elsinore,
Wildomar, and adjacent unincorporated county areas. The Anchor has 14
separate units and can house up to 20 individuals.
Encouraging development of housing for persons with special needs is an
important goal for this Housing Element. This program will remain in the
2021-2029 Housing Element and will be combined with other programs
related to special needs housing.
2021-2029 HOUSING ELEMENT PAGE – 5.7
Table 5.1: 2014-2021 Program Accomplishments
2014-2021 Housing Element
Program Program Performance and Continued Appropriateness
PROGRAM 11: HOMELESS NEED
Consistent with available funding,
address the needs of at-risk and
homeless individuals and families
through assistance to non-profits
serving the homeless population.
City staff are active participants in organizing, hosting volunteer sites,
and accompanying teams during the Homeless-Count-in-Time Program.
In 2020, Riverside County reported a homeless population of 2,884, with
50 persons living in Lake Elsinore.
On May 23, 2017, the City Council approved the creation of the Homeless
Task Force to further the City’s efforts to address homelessness. The Task
Force is a working group of community leaders who meet every other
week to identify short- and long-term solutions. The Task Force has been
instrumental in developing the “Housing LE Program.” In cooperation
with the non-profit organization SWAG (Social Work Action Group), the
City has secured Homeless Emergency Aid Program funds to provide
direct assistance to house persons who are homeless or at risk of
homelessness. The Task Force has successfully conducted homeless
street outreach and community engagement, provided rental assistance
and housing subsidies, and case management and supportive services.
City was awarded City $2,838,953 in Homekey funds in 2020 to purchase
a motel in the downtown area. The City completed the
rehabilitation/improvements necessary to operate a 14-unit crisis
stabilization/transitional housing project to provide temporary housing to
extremely low-income persons who are homeless or at risk of
homelessness (the “target population”). The Anchor was opened in
December 2020 and provides housing and supportive services to up to 28
individuals.
This program will remain in the 2021-2029 Housing Element and will be
combined with additional action items addressing homeless resources.
PROGRAM 12: CONSISTENCY
ZONING
Continue with subsequent phases
of the Consistency Zoning Project to
bring zoning consistent with the
General Plan Land Use
Designations, in accordance with
the Compatibility Matrix shown in
Appendix B of the General Plan. As
part of Zoning Code amendments,
incorporate a matrix of permitted
uses in residential zones into Title
17 – Zoning of the Municipal Code
to facilitate understanding of
allowed uses.
The Consistency Zoning Program was completed in all 11 districts within
the City.
This program is updated in the 2021-2029 Housing Element to focus on
General Plan/zoning consistency moving forward.
PAGE – 5.8 LAKE ELSINORE GENERAL PLAN
Table 5.1: 2014-2021 Program Accomplishments
2014-2021 Housing Element
Program Program Performance and Continued Appropriateness
PROGRAM 13: SPECIFIC PLANS
Promote development within
existing and future specific plans to
produce planned community
environments with a variety of
housing types and densities.
Most of the residential development within the City of Lake Elsinore
during the 2014-2021 period occurred within the Canyon Hills Specific
Plan, the East Lake Specific Plan, and the Village at Lakeshore Specific
Plan.
A considerable portion of the City is designated for specific plan
development. The specific plans are intended to allow greater design
flexibility and to encourage integrated developments. The City has
several specific plan areas that have significant residential capacity
remaining to be developed. This program will remain in the 2021-2029
Housing Element.
PROGRAM 14: DEVELOPMENT
AGREEMENTS
Work toward the incorporation of a
wide range of housing types
(including special needs housing),
densities, and affordability levels
during the negotiation or
renegotiation of development
agreements with residential
developers. Encourage developers
to construct a percentage of
affordable housing concurrently
with market rate housing in each
phase of development. During the
Development Agreement process,
facilitate and incentivize, as
feasible, the development of
housing projects on small sites, lot
consolidation of adjacent small
sites, and development of large
parcels sizes that facilitate multi-
family developments affordable to
lower income households.
A Development Agreement was executed between the City of Lake
Elsinore and the developer regarding the Alberhill Villages Specific Plan
and was recorded in July 2018. The Alberhill Villages Specific Plan plans
for the development of 8,024 residential units that will be a mix of single-
family and multi-family dwellings, including mixed-use at a variety of
densities that support the City’s policies of providing adequate and
affordable housing for all segments of the population. There was no
development activity for this project during 2019 and 2020.
In September 2017, the City of Lake Elsinore recorded a Development
Agreement regarding The Village at Lakeshore project. The Village at
Lakeshore project authorizes development of 163 detached single-family
condominium units. Pursuant to the Development Agreement, the
developer agreed to pay an “Affordable Housing in Lieu Fee” at the rate
of $2.00 per square foot of assessable space for each dwelling unit in the
project. During 2020, building permits were issued for 110 of the
detached single-family condominium units.
Development agreements are an important tool for the City in securing
development of affordable housing. This program will remain in the
2021-2029 Housing Element.
2021-2029 HOUSING ELEMENT PAGE – 5.9
Table 5.1: 2014-2021 Program Accomplishments
2014-2021 Housing Element
Program Program Performance and Continued Appropriateness
PROGRAM 15: SPECIAL NEEDS
HOUSING
Support the housing needs of
special needs households by
prioritizing projects that include
special needs housing or housing
for extremely/very low-income
households and by referring
residents to the Inland Regional
Center for housing and services
available for persons with
developmental disabilities.
Review the Zoning Code to ensure
compliance with Government Code
Section 65583(a)(5) relating to
transitional and supportive housing
as a residential use of property,
subject to only those restrictions
applicable to other residential
dwellings of the same type in the
same zone.
The City’s Zoning Code was revised in 2012 to allow for emergency
shelters, transitional housing, and supportive housing consistent with
applicable laws. The City also amended its Transportation Uniform
Mitigation Fee (TUMF) program to provide exemptions for specially
adapted homes for severely disabled veterans and continues to look to
ways to eliminate impediments to the provision of special needs housing.
No referrals were made and no inquiries from developers and/or non-
profit organizations interested in developing special needs housing were
received.
With the elimination of redevelopment agency funding, the City is
diligently working to secure affordable housing funds available to assist
new affordable housing development aimed at serving the City’s special
needs population.
In September 2020, the City was awarded a $3.1 million grant through
Project Homekey, a State program to purchase and rehabilitate housing,
including hotels, motels, vacant apartment buildings and other
properties, and convert them into permanent, long-term housing for
people experiencing or at risk of experiencing homelessness. The funding
was used for purchase costs and renovations to The Anchor, a crisis
stabilization housing complex owned by the City and operated by Social
Work Action Group (SWAG) serving chronic homeless individuals from
Lake Elsinore, Wildomar and adjacent county areas. The Anchor has 14
separate units and can house up to 20 individuals.
Increasing the supply of new housing for persons with special needs is a
central goal for this Housing Element. This program will remain in the
2021-2029 Housing Element and will be combined with other programs
related to special needs housing.
PAGE – 5.10 LAKE ELSINORE GENERAL PLAN
Table 5.1: 2014-2021 Program Accomplishments
2014-2021 Housing Element
Program Program Performance and Continued Appropriateness
PROGRAM 16: FAIR HOUSING
Work towards ensuring fair housing
choices for all residents by
advertising resident rights under
federal and State fair housing laws
and providing access to local fair
housing service providers. Make
this information available on the
City website. Amend Title 17 of the
Municipal Code to revise or remove
the definition of family to be
flexible for a variety of household
types, consistent with State and
federal laws.
The Zoning Ordinance’s definition of “family” is consistent with
applicable laws and fair housing policies.
The City is an active member of the Fair Housing Council of Riverside
County, and fair housing brochures are available at the front counter of
City Hall. The City’s website includes a link to the Fair Housing Council’s
First-Time Homebuyer Program for informative fair housing materials.
Providing resources and information to address fair housing issues is an
important goal for the City. This program will be included in the 2021-
2029 Housing Element and will reflect updated fair housing requirements
in State law.
PROGRAM 17: REASONABLE
ACCOMMODATION
Adopt a process to address
requests for reasonable
accommodation, and develop
procedures regulating siting,
funding, development and use of
housing for people with disabilities.
The City actively provides reasonable accommodation for persons with
disabilities seeking fair access to housing in the application of City zoning
and building regulations and in June 2019 adopted an amendment to
Title 17 (Zoning) of the Lake Elsinore Municipal Code formalizing a
reasonable accommodation process.
This program is implemented and will be removed from the 2021-2029
Housing Element. Policies related to ensuring reasonable accommodation
will be included in its place.
As part of the 2014-2021 Housing Element, the City established a set of quantified objectives for housing
construction, rehabilitation, and preservation. Table 5.2 summarizes the quantified objectives contained
in the City’s 2014-2021 Housing Element and compares the City’s progress in fulfilling these objectives.
The City recognizes that it had limited resources to address the varied affordable housing needs in the
community. Nonetheless, it worked diligently to address the community’s housing needs. In 2017, the
City partnered with private developers to approve two affordable housing projects: The Cottages at
Mission Trail and the Mission Trail Apartments. Both projects are located on properties acquired by the
City as affordable housing opportunity sites. The Mission Trail Apartments project was approved,
project financing closed, and development commenced in 2018. This project includes 80 deed-
restricted affordable rental units, including 21 very low-income and 59 low-income units. The Cottages
at Mission Trail project was approved in 2018 and completed in 2021. The Cottages project includes 142
deed-restricted affordable rental units, including 20 very low-income and 122 low-income units.
2021-2029 HOUSING ELEMENT PAGE – 5.11
Table 5.2: Summary of 2014-2021 Quantified Objectives and Progress
Objectives
Income Levels
Total
Extremely/Very
Low Low Moderate
Above
Moderate
Construction Objective (RHNA)
Goal 1,196 801 897 2,035 4,929
Progress 43 (3.6%) 185 (23.0%) 1,162 (130%) 1,136 (55.8%) 2,526 (51.2%)
CDBG Home Repair Program Objectives
Goal 10-15 -- -- -- 10-15
Progress 8 (53%) -- -- -- 8(53%)
In-Lieu Housing Rehab Loan Program Objectives
Goal 10 -- -- -- 10
Progress 0 (0%) -- -- -- 0 (0%)
PAGE – 5.12 LAKE ELSINORE GENERAL PLAN
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2021-2029 HOUSING ELEMENT PAGE – 6.1
lake elsinore general plan
housing element
6. HOUSING PLAN
This Housing Plan’s goals, policies, and programs have been established to address housing issues in
Lake Elsinore and meet State law housing requirements. The City’s overarching objective is to ensure
development, revitalization, and preservation of a balanced inventory of housing to meet the needs of
present and future residents. In particular, the City looks to ensure that all residents have decent, safe,
sanitary, and affordable housing regardless of income. These goals, policies, and programs are informed
by the housing needs assessment (Section 2), housing constrains analysis (Section 3), housing resources
analysis (Section 4), and the review or program accomplishments for the previous (2014-2021) Housing
Element (Section 5).
As used here, a goal is a statement defining a desired end result; a policy is a plan of action to guide
decisions and actions; and a program identifies the method, agencies, officials, funding sources, and time
frame the City will undertake to implement the policies and achieve the goals set forth in this Housing
Element.
The Housing Element goals, policies, and programs aim to:
• Conserve and improve the condition of the existing housing stock;
• Assist in the development of housing for low- and moderate-income households;
• Identify adequate sites to encourage the development of a variety of types of housing for all
income levels;
• Address and, where appropriate and legally possible, remove governmental constraints to the
maintenance, improvement, and development of housing; and
• Promote equal opportunities for all persons.
Programs generally include a statement of specific City action(s) necessary to implement a policy or goal
and identify the City department or other agency responsible for implementation, the quantified
objectives (where applicable), and a timeframe for completion. A summary of quantified objectives
follows the program descriptions.
PAGE – 6.2 LAKE ELSINORE GENERAL PLAN
The plan also aims to reflect the values and preferences of the Lake Elsinore community. Through a series
of public outreach efforts such as survey and community workshop and comments on the Draft Housing
Element, the City obtained input from residents of the community, local agencies and housing groups,
and community organizations. Several themes emerged that the City has tried to address in this plan.
When asked to indicate the importance of potential housing -related actions or programs in the City’s
Housing Element survey, the following priorities emerged:
• Establishing/supporting programs to help first-time homebuyers;
• Programs to help homeowners at risk of mortgage default; and
• Encouraging the rehabilitation of existing housing in older neighborhoods.
Comments from the community workshop and public review of the Draft Housing Element include:
• Addressing the impact on services and infrastructure from future residential development
(schools, roads, infrastructure);
• Development of Accessory Dwelling Units (ADUs) to address housing need including
overcrowding;
• The need for senior housing, affordable housing; and
• More strategies to encourage development in Downtown.
The comments have been folded into the Housing Plan through programs that facilitate development of
new housing, including housing for lower-income residents and residents with special needs and programs
to help existing residents with housing rehabilitation and rental assistance and future residents by
supporting regional homeownership programs.
These goals, policies, and programs provide the framework for the City’s overall housing program. Specific
policies and implementation programs are intended to provide a wide variety of tools to implement
housing goals. This Plan focuses on goals, polices, and programs that meet State law requirements and
can realistically accomplished based on current funding and staffing levels. This does not preclude the City
from undertaking additional program actions not included in this Plan if they are consistent with the goals
and policies set here and throughout the General Plan. Actual programs will be implemented at the
discretion of the City Council given available funding resources.
Housing Goals, Policies, and Programs
Goal 1 Preservation, maintenance, and improvement of the existing housing stock,
including the affordable housing stock
Policy 1.1 Continue to enforce building, land use, and property maintenance codes.
Policy 1.2 Facilitate the removal or rehabilitation of housing units that pose serious health and
safety hazards to residents and adjacent structures.
2021-2029 HOUSING ELEMENT PAGE – 6.3
Policy 1.3 Continue programs directed at preserving the physical quality of housing and
neighborhood environments and maintaining compliance with established standards.
Policy 1.4 Invest in neighborhoods that have aging and deteriorating housing and infrastructure.
Policy 1.5 Assist in the preservation of housing units at risk of converting from affordable
housing to market rate housing.
Policy 1.6 Encourage energy conservation and sustainable building measures in new and existing
homes and the addition of energy conservation devices/practices in existing
developments.
Program 1: Code Enforcement
The Code Enforcement Division is responsible for enforcing City Municipal Codes and certain State codes
which address public health and safety, property maintenance regulations dealing with rubbish, debris,
overgrown yards/vegetation, lack of landscaping, unsecured vacant buildings, dilapidated fences and
walls, inoperable abandoned vehicles on private property, and other public nuisance conditions.
Enforcement actions are taken proactively and in response to citizen complaints and requests for action
by other City departments and outside public agencies. The City will continue using code enforcement to
identify housing maintenance issues and to expedite rehabilitation of substandard and deteriorating
housing by offering technical assistance or assistance referrals to homeowners and occupants. The City
provides information on the Code Enforcement program and includes the process to file complaints,
appeal a violation, and provides a detailed description of code violations enforced by the Code
Enforcement Division. As new projects, code enforcement actions, and other opportunities arise, the City
will investigate ways to meet its housing needs through rehabilitation and preservation of existing units.
Timeframe: Ongoing; Annual Quantification of Cases/Inspection as part of the Annual
Progress Report process; applying/approving CDBG funding on an annual basis.
Responsible Agency: Community Development Department – Planning, Building and Code
Enforcement Divisions
Funding Source: General Fund (staff time), CDBG
Quantified Objective: Rehabilitation assistance or assistance referrals to 16 lower-income households
(2 per year)
Program 2: Substandard and Abandoned Housing
Eliminate—through demolition—unsafe and dilapidated housing units that cannot be rehabilitated.
Enforce the City’s Abandoned Residential Property Registration Program (Chapter 8.60 of the Lake
Elsinore Municipal Code) and encourage owners of houses and properties that become vacant and
abandoned due to foreclosure or other circumstances to maintain or rehabilitate the properties. Utilize
PAGE – 6.4 LAKE ELSINORE GENERAL PLAN
CDBG or other funds, as available, to provide financial assistance for minor repairs of homes owned and
occupied by lower-income residents.
Timeframe: Ongoing; Annual quantification of new registrations and demolitions as part of
the Annual Progress Report process
Responsible Agency: Community Development Department – Planning, Building and Code
Enforcement Divisions
Funding Source: Department Budget, General Fund, CDBG
Quantified Objective: Assist approximately 25 lower-income households (3 per year).
Program 3: Housing Rehabilitation Programs
Utilize CDBG or other funds, as available, to provide financial assistance for minor repairs of homes owned
and occupied by lower-income residents. Eligible repairs include plumbing, electrical, painting, carpentry,
roof repairs, and masonry work. Continue using the Receivership Program to rehabilitate at-risk
residential properties.
Timeframe: Ongoing
Responsible Agency: Community Development Department – Planning Division
Funding Source: CDBG; City Affordable Housing Funds
Quantified Objective: Assist approximately 25 lower-income households (3 per year).
Program 4: Affordable Housing at Risk of Conversion
Based on City records and information from the California Housing Partnership Corporation, in the next
10 years (2021-2031) no assisted units have expiring affordability covenant. However, the City will
continue to monitor the status of subsidized affordable projects, rental projects, and mobile homes and
provide technical and financial assistance, when possible, to ensure long-term affordability. If affordable
housing developments become at-risk of converting to market rate housing, the City will maintain contact
with local organizations and housing providers who may have an interest in acquiring at-risk units. The
City will keep track of and apply for funding opportunities to preserve at-risk units and assist other
organizations in applying for funding to acquire at-risk units.
Timeframe: Ongoing; Contact owners/operators if a property becomes at risk of conversion
Responsible Agency: Community Development Department – Planning Division
Funding Source: Department Budget
Quantified Objective: Preserve 754 affordable units (listed in Table 2.16)
Program 5: Energy Conservation
Encourage and facilitate energy conservation and help residents minimize energy-related expenses by:
2021-2029 HOUSING ELEMENT PAGE – 6.5
• Promoting environmentally sustainable building practices that provide cost savings to
homeowners and developers.
• Providing informational material at the Community Development Department counters from
utility providers and others that detail energy conservation measures for new and existing
buildings, the benefits of the Green and sustainable building, and resources to assist lower-
income households with energy-related expenses.
• Continue to implement the Climate Action Plan (CAP) to reduce local greenhouse gas (GHG)
emissions in accordance with State law.
• Continuing to strictly enforce the state energy standards of the California Green Building Code.
Timeframe: Ongoing
Responsible Agency: Community Development Department – Planning Division
Funding Source: Department Budget
Objective: Assist residents in minimizing energy-related expenses
Goal 2 Diverse and high-quality housing opportunities to meet the needs of all
economic segments of the community
Policy 2.1 Preserve and expand the City’s supply of affordable (low- and/or moderate-income)
rental and ownership housing for lower- income households.
Policy 2.2 Use incentives and regulatory concessions to promote the development of housing
for lower-income persons and those with special needs including, but not limited to,
large families, persons with physical or developmental disabilities, families with
children, seniors, and persons experiencing homelessness.
Policy 2.3 Continue to actively pursue and utilize federal and State subsidies, as well as
partnerships and City resources to the fullest extent possible, to assist in meeting
the housing needs of lower-income residents, including extremely low-income
residents.
Policy 2.4 Discourage the conversion of existing apartment units to condominiums where such
conversion will diminish the supply of lower-income housing.
Policy 2.5 Support local and regional efforts to address homelessness and programs that
provide emergency resources.
Policy 2.6 Provide information to residents and businesses about COVID-19 pandemic tenant,
homeowner, and small landlord protection programs assistance on the City website.
Policy 2.7 Promote coordination and cooperation between the City, developers, and
neighborhood residents early and throughout the process for affordable housing
developments.
PAGE – 6.6 LAKE ELSINORE GENERAL PLAN
Policy 2. 8 As funding allows, explore opportunities to address existing housing problems and
support regional programs to assist prospective homebuyers.
Program 6: Density Bonus
Maintain an affordable housing density bonus ordinance that establishes procedures for obtaining and
monitoring density bonuses in compliance with state law. Update the City’s density bonus ordinance to
remain in compliance with Government Code §65915 or update the City’s zoning regulations to cross
reference the most recent State laws governing density bonus provision.
Include a copy of the Density Bonus Ordinance with Residential Design Review Applications.
Timeframe: Updated density bonus ordinance adoption within two years of Housing
Element adoption; reviewing ordinance for compliance with State law and
density bonus information- ongoing
Responsible Agency: Community Development Department – Planning Division
Funding Source: Department Budget
Quantified Objective: Four projects that use the density bonus provisions
Program 7: Affordable Housing Development
Make available on the City website and distribute to interested developers and non-profit housing
agencies a list of City-owned property suitable for affordable housing projects and the Housing Element
which includes a residential sites inventory. Update the City-owned property list regularly.
Provide pre-application technical assistance to affordable housing providers to determine project
feasibility. Address zoning and code compliance issues in the most cost-effective and expeditious manner
possible. If not already initiated via potential projects, annually consult with local affordable housing
developers, including offering letters of support for grant applications, advising on local zoning and code
compliance, and facilitating partnerships.
When appropriate (based on affordability level) and available funding, the City will provide incentives or
financial assistance to residential developments that include units that are affordable to lower-income
households, including extremely low-income households. Assistance can include expedited permit
processing, impact fee deferrals, and funding assistance (Low- and Moderate-Income Housing Asset Funds
contingent on a project meeting the location and affordability requirements). The City will promote these
incentives to developers during the application process and use development agreements to obtain the
inclusion of affordable housing units in new residential projects.
The City has added incentives to encourage lot consolidation in the text of the Downtown Elsinore Specific
Plan and will considering expanding those incentives citywide.
2021-2029 HOUSING ELEMENT PAGE – 6.7
Timeframe: List of City-owned properties upon Housing Element Adoption and Certification;
Update annually.
Responsible Agency: Community Development Department – Planning Division
Funding Source: Department Budget, Low- and Moderate-Income Housing Asset Funds
Quantified Objective: Assistance for two affordable housing projects in the planning period
Program 8: Affordable Housing Partnerships
Work with agencies and organizations to increase affordable housing activities such as construction,
rehabilitation, or financial assistance to renters and owners. Provide a link to available housing programs
for residents and developers on the City website. Partnerships and programs to continue and/or pursue
include but are not limited to: County of Riverside Housing Authority (City/County Mortgage Revenue
Bonds), County of Riverside Office of Economic Development (First Time Home Buyer and Mortgage
Certificate Program), California Housing Finance Agency (CalHFA), and Habitat for Humanity. Endeavor to
facilitate at least two affordable housing project during the planning period.
Participate and leverage funds form the newly created Western Riverside County Housing Finance Trust,
a joint powers authority, for the purposes of funding housing specifically assisting the homeless
population and persons and families of extremely low-, very low-, and low-income within the County of
Riverside.
Timeframe: Ongoing; Web link to available housing programs on the City website within one
year; Assess the City’s role in the new Western Riverside County Housing
Finance Trust and explore timeframes for leveraging funds to be used within the
City.
Responsible Agency: Administrative Services Department; Community Development Department –
Planning Division
Funding Source: Department Budget
Quantified Objective: Two affordable housing projects during the planning period
Program 9: Downtown Lake Elsinore Residential Development
Incentivize infill development in the City’s historic Downtown to establish an attractive, walkable
streetscape with a mix of shopping opportunities, restaurants, and housing in both well-maintained
historic buildings and high-quality new development and open spaces.
Pursue land purchases for residential development, redevelop tax-delinquent properties, and consolidate
parcels to create larger, development ready pads in/near Downtown. Pursue modifications to residential
development standards to facilitate development in Downtown and identify funding sources to invest in
infrastructure and housing.
Timeframe: Ongoing
Responsible Agency: Community Development Department – Planning Division
PAGE – 6.8 LAKE ELSINORE GENERAL PLAN
Funding Source: Department Budget
Quantified Objective: Two infill development projects in the City’s historic Downtown; Assembly of
two development ready pads in/near Downtown; Review and revision of
Downtown developments standards within 3 years.
Program 10: Homeowner Assistance Programs
Continue to support first-time, home buyers in Lake Elsinore by connecting interested residents and
members of the public to the Mortgage Credit Certificate (MCC) and First Time Home Buyer Down
Payment Assistance Program (FTHB)run by Riverside County Economic Development Agency (EDA) and
the First Time Home Buyer program, run by the California Housing Finance Agency (CalHFA).
Direct residents to national and regional mortgage assistance programs, including but not limited to the
Fair Housing Council of Riverside’s First-Time Homebuyer workshops, Homebuyer Pre-Purchase
Consulting services, and Foreclosure Prevention/Loan Modification Services.
Coordinate with local service providers and other community-based organizations to publicize these
housing assistance programs. Provide information on these programs on the City’s website and via social
media, through flyers posted at City facilities, and via staff assistance at City Hall.
Timeframe: Ongoing; Post on City website by January 2023.
Responsible Agency: Community Development Department, City Manager
Funding Sources: Departmental Budget
Objective: Direct residents to regional or state homeowner assistance resources
Program 11: Development Process Streamlining
Continue streamlining the project review process by:
• Reviewing, and if necessary, revising local review procedures to facilitate a streamlined review
process.
• Accommodating SB 35 streamlining applications or inquiries by creating and making available to
interested parties an informational packet that explains the SB 35 streamlining provisions in Lake
Elsinore and provides SB 35 eligibility information.
Timeframe: Ongoing; SB 35 informational material within two years of Housing Element
adoption
Responsible Agency: Community Development Department – Planning Division
Funding Source: Department Budget
Objective: Provide information about SB 35 streamlining provisions in Lake Elsinore and
eligibility information
2021-2029 HOUSING ELEMENT PAGE – 6.9
Program 12: Objective Design Standards
In compliance with SB 330, adopt objective design standards to ensure that the City can provide local
guidance on design and clearly articulate objective design standards for by-right projects as allowed by
state law. Adoption of objective design standards will facilitate high-quality residential development and
compliance with State objectives regarding streamlined project review. The objective design standards
will ensure provision of adequate private open space, parking, and architectural features, consistent with
state law. Part of the objective design standards creation process will include assessing how the standards
can be used to encourage a variety of housing types and limit the size of residential units on multi-family
zoned properties to encourage units that are affordable by design.
Timeframe: Within two years of Housing Element adoption
Responsible Agency: Community Development Department – Planning Division
Funding Source: Department Budget; State funding programs
Objective: Adoption of objective design standards
Program 13: Rental Assistance
Continue to support the Housing Choice Voucher (Section 8) Program. Direct eligible households to the
Housing Choice Voucher rental assistance program managed by the Housing Authority of Riverside
County. Provide information to landlords regarding participation in the Housing Choice Voucher Rental
Assistance Program. Work with the Housing Authority of the County of Riverside to promote Housing
Choice Voucher use in high resources area in the City. Expand the location of participating voucher
properties by adding information for property owners and landlords to the City’s website about
participation in the Housing Choice Voucher Rental Assistance Program and advertising the County’s
Informational Seminars for Landlords.
Timeframe: Ongoing; Add information to the City’s website on participation in the Housing
Choice Voucher Rental Assistance Program within one year from Housing
Element adoption.
Responsible Agency: Administrative Services Department; Community Development Department –
Planning Division
Funding Source: Department Budget
Objective: Preservation of 230 Housing Choice Vouchers currently in use in Lake Elsinore
Program 14: Special Needs Housing
The City will encourage and facilitate housing opportunities to meet the special housing needs of special
needs residents— including seniors, disabled, developmentally disabled, large families, the homeless,
farmworkers, and extremely low-income households—by:
PAGE – 6.10 LAKE ELSINORE GENERAL PLAN
• Giving priority for available funding to development projects that include a component for special
needs groups in addition to other lower-income households by proactively identifying and
advertising available funds to assist in the development of affordable and special needs housing
and annually contacting a list of developers and stakeholders with the capacity and experience to
develop affordable and special needs housing in Lake Elsinore.
• Creating an online inventory of City-owned properties that are appropriate for development of
affordable or special needs housing and publicize their availability to promote the use of sites for
housing. Share inventory with non-profit, or special needs organizations annually.
• Adopt a density bonus ordinance in compliance with Government Code Section 65915.
• Adopt objective design standards to ensure that the City can provide local guidance on design and
clearly articulate objective design standards for by-right projects as allowed by state law.
• Providing technical assistance (application assistance, references) for non-profit organizations to
pursue funding for the construction of senior, disabled, or other special needs housing. Provide
referrals to federal programs such as the U.S. Department of Housing and Urban Development
(HUD) Section 202 Supportive Housing for the Elderly Program.
• Assist interested affordable or special needs developers pursue projects in the City by offering
expedited permit processing, flexibility in development standards and reduced, waived, or
subsidized development and impact fees for affordable housing. Assist in meeting the housing
needs for persons with disabilities, including persons with developmental disabilities, by assisting
developers who seek State and federal monies in support of housing construction and
rehabilitation targeted for persons with disabilities, including persons with developmental
disabilities and providing regulatory incentives to projects targeted for persons with disabilities,
including persons with developmental disabilities.
Timeframe: Ongoing; List of City-owned properties appropriate for affordable or special
needs housing by December 2022; Annual contact with special needs
stakeholders to advertise available City funds if funding is available (including
sharing a list of City-owned properties that can be used for affordable or special
needs housing and available funding sources).
Responsible Agency: Administrative Services Department; Community Development Department –
Planning Division
Funding Source: Department Budget, Low- and Moderate-Income Housing Asset Funds
Quantified Objective: Assistance for two special needs housing projects in the planning period
Program 15: Resources to Address Homeless Need
The City will use available funding (CDBG) to support organizations that address the needs of at-risk and
homeless individuals and families through assistance to non-profits serving the homeless population. The
City will annually contact service providers and share identified levels of CDBG or other available funds
(including City funds) for homeless resources or housing programs. The City will continue working with
non-profit organizations that address homelessness to aid residents in need and provide technical support
(such as preapplication consultation, identification of available City funding or incentives such as
expedited permit processing, flexibility in development standards and reduced, waived, or subsidized
2021-2029 HOUSING ELEMENT PAGE – 6.11
development and impact fees) as needed and will cultivate a close relationship with qualified and
experienced non-profits to operate a safe and secure crisis stabilization housing complex (The Anchor).
The City will create an online inventory of City-owned properties that are appropriate for development of
affordable or special needs housing and publicize their availability to promote the use of sites for housing.
Share inventory with non-profit, or special needs organizations annually.
The City will continue using the Lake Elsinore Homeless Task Force to further the City's efforts to address
homelessness as a means to engage key community leaders, businesses, and residents to join the City in
its efforts to reduce homelessness in our community. As part of the Homeless Task Force, the City will
fund a position for homeless outreach. The City will also continue participation in the Regional Homeless
Alliance for Southwest Riverside County
Timeframe: Ongoing funding for the Lake Elsinore Homeless Task Force; applying/approving
CDBG funding for non-profit organizations on an annual basis. List of City-owned
properties appropriate for affordable or special needs housing by December
2022; Annual contact with special needs stakeholders to advertise available City
funds if funding is available (including sharing a list of City-owned properties
that can be used for affordable or special needs housing and available funding
sources).
Responsible Agency: Administrative Services Department
Funding Source: Department Budget; CDBG; Project Homekey funds
Quantified Objective: Assistance for one non-profit organizations annually that helps residents
experiencing homelessness
Goal 3 Adequate sites for housing development to accommodate a range of housing by
type, size, location, price, and tenure
Policy 3.1 Use the City’s General Plan, Municipal Code, other land use and development plans,
and the development process to provide housing sites that meet the identified local
need.
Policy 3.2 Promote a balance of housing types, including mixed-use development, to meet the
needs of the community.
Policy 3.3 Maintain an inventory of vacant and underutilized land and make available to the
development community.
Policy 3.4 Provide avenues for the development of housing for extremely low-income and
special needs persons.
PAGE – 6.12 LAKE ELSINORE GENERAL PLAN
Policy 3.5 Require that new development pay the cost of providing needed facilities and an
equitable share of services and to mitigate negative impacts such as those to the
transportation system.
Program 16: Adequate Sites
The City of Lake Elsinore has a remaining RHNA of 6,555 units for the 2021-2029 RHNA planning period
after credits for approved projects are taken into consideration. Overall, the City can adequately
accommodate the City’s current RHNA under existing General Plan and Zoning Code standards. The
residential sites inventory to address the current RHNA consists of accessory dwelling unit (ADU)
projections, development capacity in Specific Plan areas, and vacant residential and mixed-use sites with
capacity to yield 11,749 new units.
The City will maintain an inventory of available sites for residential development and provide it to
prospective residential developers upon request. The City will continue to track the affordability of new
housing projects and progress toward meeting the City’s RHNA.
To facilitate effective coordination between local planning and water and sewer service functions to
ensure adequate water and sewer capacity is available to accommodate housing needs, following Housing
Element adoption, deliver the 2021-2029 Lake Elsinore Housing Element to all providers of sewer and
water service within the City of Lake Elsinore in accordance with Government Code §65589.7. The City
does not provide water and sewer services. As of June 2022, the Elsinore Valley Municipal Water District
(EVMWD), which provides water and sewer services to the City, indicated that it was unclear if procedures
are in place to grant priority for the provision of water and sewer services to proposed developments that
include units affordable to lower-income households as required by Government Code 65589.7. The City
of Lake Elsinore does not have jurisdiction over the District as such, EVMWD was alerted of the
requirements under Government Code §65589.7 and staff at EVMWD indicated that they would take
action to put a compliant procedure in place to grant priority for the provision of water and sewer services
to proposed developments that include units affordable to lower-income households by December 2022.
The City is not responsible for the actual construction of these units. The City can, however, create a
regulatory environment that enable the private market to build these units. This includes the adoption
and implementation of General Plan policies, zoning, and development standards, and/or incentives to
encourage the construction of various types of units.
Timeframe: Ongoing; annual assessment of status of housing sites inventory as part of the
annual reporting process to the State; Submittal of Housing Element to local
sewer and water service providers following Housing Element adoption; Confirm
status of EVMWD priority procedures by April 2023.
Responsible Agency: Administrative Services Department and Community Development Department
– Planning Division
Funding Source: Department Budget
2021-2029 HOUSING ELEMENT PAGE – 6.13
Quantified Objective: 6,555 units (remaining RHNA)
Program 17: No Net Loss
Government Code Section 65863 stipulates that a jurisdiction must ensure that its Housing Element
inventory can accommodate its share of the RHNA by income level throughout the planning period. If a
jurisdiction approves a housing project at a lower density or with fewer units by income category than
identified in the Housing Element, it must quantify at the time of approval the remaining unmet housing
need at each income level and determine whether there is sufficient capacity to meet that need. If not,
the city or county must “identify and make available” additional adequate sites to accommodate the
jurisdiction’s share of housing need by income level within 180 days of approving the reduced-density
project.
The City will evaluate residential development proposals for consistency with goals and policies of the
General Plan and the 2021-2029 Housing Element sites inventory. The City will make written findings that
the density reduction is consistent with the General Plan and that the remaining sites identified in the
Housing Element are adequate to accommodate the RHNA by income level. If a proposed reduction of
residential density will result in the residential sites inventory failing to accommodate the RHNA by income
level, the City will identify and make available additional adequate sites to accommodate its share of
housing need by income level within 180 days of approving the reduced density project.
Timeframe: Ongoing; as part of the entitlement review process, evaluate new projects for
consistency with General Plan objectives as they relate to housing and RHNA
obligations
Responsible Agency: Community Development Department – Planning Division, Planning
Commission, City Council
Funding Source: Department Budget (staff time) and application fees
Objective: Ensure that its Housing Element inventory can accommodate its share of the
RHNA by income level throughout the planning period.
Program 18: Consistency Zoning
When updates to the General Plan are made, complete zoning actions necessary to bring Title 17 – Zoning
of the Municipal Code consistent with the General Plan Land Use Element.
Timeframe: Following any General Plan amendments or Updates
Responsible Agency: Community Development Department – Planning Division
Funding Source: Department Budget
Objective: Ongoing General Plan and Zoning Consistency
Program 19: Accessory Dwelling Units
PAGE – 6.14 LAKE ELSINORE GENERAL PLAN
The City has promoted the development of accessory dwelling units (ADUs) by updating its ADU ordinance
in 2021 (Ordinance No. 1448) which addresses the latest provisions in State law, including permit
streamlining processes required by law (AB 68 and AB 881). The City will provide technical resources to
interested property owners such as an ADU Frequently Asked Questions handout that explains where
ADUs can be developed in Lake Elsinore and what development standards they must adhere to. The City
will create a webpage on the City’s website with ADU resources. The City will also provide pre-approved
ADU development plans within three years and provide written information at the City’s planning counter
and website.
Timeframe: Ongoing; ADU Ordinance - within two years of Housing Element adoption; ADU
website and FAQ handout within one year; preapproved ADU plans within three
years
Responsible Agency: Community Development Department – Planning Division
Funding Source: Department Budget
Quantified Objective: 50 Units (this Objective is a subset of and not in addition to the Quantified
Objective for Program 16: Adequate Sites)
Program 20: Specific Plans
While initiation of physical development of a Specific Plan is largely outside the control of the City, the
City will continue to promote development within existing and future specific plans. The City will maintain
a list of Specific Plans with remaining development capacity and provide entitlement information of each
plan as well as necessary entitlements or actions. The City will reach to owners/developers of Specific
Plans with no recent entitlements actions every other year to identify any development constraints that
may be within the control of the City. The City will address any identified issues. During the outreach
process, the City will also provide information to owners and developers about available housing funds to
assist in the development of affordable housing.
Timeframe: Ongoing; Post list of Specific Plan capacity and entitlement levels (Table 4.6 in
Chapter 4) on the City’s “Adopted Specific Plans” webpage following Housing
Element adoption. Annual update of a Specific Plan entitlement level list;
Outreach to owners/developers every two years.
Responsible Agency: Administrative Services Department; Community Development Department –
Planning Division
Funding Source: Department Budget
Objective: Ongoing contact and support for Specific Plan owners/developers
Program 21: Development Agreements
Work toward the incorporation of a wide range of housing types (including special needs housing),
densities, and affordability levels during the negotiation or renegotiation of Development Agreements
with residential developers. Encourage developers to construct a percentage of affordable housing
concurrently with market rate housing in each phase of development. During the Development
2021-2029 HOUSING ELEMENT PAGE – 6.15
Agreement process, facilitate and incentivize, as feasible, the development of housing projects on small
sites, lot consolidation of adjacent small sites, and development of large parcels sizes that facilitate multi-
family developments affordable to lower-income households.
Timeframe: Ongoing
Responsible Agency: Administrative Services Department; Community Development Department –
Planning Division
Funding Source: Department Budget
Quantified Objective: Two Development Agreements that result in the inclusion of special needs
housing or affordable housing
Goal 4 The removal of governmental and non-governmental constraints to the
development, improvement, and maintenance of housing
Policy 4.1 Periodically review residential development standards and regulations, ordinances,
processing procedures, and residential fees to identify and mitigate constraints that
may impede the development, improvement, and conservation of housing.
Policy 4.2 Review projects in as timely a manner as possible, while maintaining adequate public
involvement and fulfilling the appropriate requirements of state and local laws.
Policy 4.3 Monitor State and federal housing-related legislation—and update City plans,
ordinances, and processes pursuant to such legislation—to remove or reduce
governmental constraints.
Policy 4.4 Assist applicants navigating the development approval process; facilitate building
permit and development plan processing for residential construction.
Program 22: Compliance with Zoning Laws
• Amend the City’s zoning regulations and make changes to ensure compliance with Senate Bill 2
(SB 2), the Supportive Housing Streamlining Act (AB 2162) and AB 101 (Low-Barrier Navigation
Centers):
o SB 2 requires that the City treat transitional and supportive housing as a residential use
and only subject to those restrictions that apply to other residential dwellings of the same
type in the same zone (Government Code Section 65583(a)(5)).
o AB 2162 requires supportive housing to be considered a use by right in zones where multi-
family and mixed uses are permitted, including nonresidential zones permitting multi-
family uses if the proposed housing development meets specified criteria. The law
prohibits the local government from imposing any minimum parking requirement for
units occupied by supportive housing residents if the development is located within one-
half mile of a public transit stop. AB 2162 also require local entities to streamline the
PAGE – 6.16 LAKE ELSINORE GENERAL PLAN
approval of housing projects containing a minimum amount of supportive housing by
providing a ministerial approval process, removing the requirement for CEQA analysis,
and removing the requirement for Conditional Use Authorization or other similar
discretionary entitlements.
o AB 101 requires that Low-Barrier Navigation Centers (LBNC) be a by-right use in areas
zoned for mixed-use and in nonresidential zones permitting multi-family uses (by-right or
conditionally). LBNC provide temporary room and board with limited barriers to entry
while case managers work to connect homeless individuals and families to income, public
benefits, health services, permanent housing, or other shelter.
• Require that employee housing, including agricultural employees, be treated like any other
residential use in the same zone consistent with the Employee Housing Act.
• Allow residential use by right for housing developments in which at least 20 percent of the units
are affordable to lower-income households on sites identified in the Sites Inventory and Appendix
B as subject to AB 1397.
Timeframe: Ongoing; Review Zoning Code for ongoing consistency with State law within 2
years of Housing Element adoption. Zoning Code revisions within two years.
Responsible Agency: Community Development Department – Planning Division
Funding Source: Department Budget
Objective: Compliance with SB2, AB 2162, AB 101, AB 1397, and the Employee Housing Act
Program 23: Residential Development Standards
The City will review developments standards for the residential zoning districts and revise standards that
are found to constrain development of housing within two years. The City will identify residential or
mixed-use zones or geographic areas where an increase in residential density would facilitate
development of housing and increase those densities within two years. Potential changes will ensure that
the City’s planning and design goals for residential and mixed-use projects are met.
The City will provide prototype development plans for different residential types as a tool to streamline
and facilitate residential development. Prototype plans can also assist with grant funding application for
affordable or special needs housing as plans can be tailored to the funding application requirements
Timeframe: Ongoing; Review and update residential developments standards within 3 years
of Housing Element adoption; Prototype development plans within 3 years
Responsible Agency: Community Development Department – Planning Division
Funding Source: Department Budget; Grant Funding
Objective: Revise developments standards that are found to constrain housing
development
Program 24: Non-Government Constraints
2021-2029 HOUSING ELEMENT PAGE – 6.17
Continue to monitor and evaluate development standards and advances in housing construction methods.
Although the City has limited influence over non-governmental constraints, if non-governmental
constraints are identified, the City will review, and if necessary, revise, any development regulations or
processes that can potentially lessen those constraints.
Timeframe: Ongoing
Responsible Agency: Community Development Department – Planning Division
Funding Source: Department Budget
Objective: Revise standards or processes that are found to constrain housing development
PAGE – 6.18 LAKE ELSINORE GENERAL PLAN
Goal 5 Affirmatively furthering equal and fair access to sound, affordable housing
for all persons
Policy 5.1 Affirmatively further fair housing related to the sale, rental, and financing of housing
to avoid discrimination based on race, religion, age, sex, marital status, ancestry,
national origin, color, familial status, or disability, or any other arbitrary factor.
Policy 5.2 Assist in the enforcement of State and federal fair housing and anti-discrimination
laws by assisting organizations that receive and investigate fair housing allegations
and refer possible violations of fair housing laws to enforcing agencies.
Policy 5.3 Promote and affirmatively further fair housing opportunities and promote housing
options throughout the community for all persons and reduce the risk of
displacement.
Policy 5.4 Ensure that persons with disabilities have adequate access to housing and reasonable
accommodation in zoning and land use regulations.
2021-2029 HOUSING ELEMENT PAGE – 6.19
Program 25: Affirmatively Further Fair Housing
The City promotes and affirmatively furthers fair housing opportunities and promotes housing for all persons, including those protected by the
California Fair Employment and Housing Act and any other State and federal fair housing and planning laws. The City will continue to promote public
awareness of federal, State, and local regulations regarding equal access to housing and will provide information to the public on various state and
federal housing programs and fair housing law. Maintain fair housing service referral information on the City’s web site. Timeframe: Post fair housing
information on City website by December 2022. The City will also continue to implement Government Code section 8899.50, subdivision (b), which
requires the City to administer its programs and activities relating to housing and community development in a manner to affirmatively furthers fair
housing and take no action that is materially inconsistent with its obligation to affirmatively further fair housing. Timeframe: ongoing.
The City will work to address housing choices and affordability in high opportunity areas, strategies for preservation and revitalization, and
displacement protection. Chapter 3 summarizes the fair housing issues and concerns in Lake Elsinore based on research conducted as part of this
Housing Element update and supplemented by findings of the 2019 Riverside County Analysis of Impediments to Fair Housing Choice. Program 25
includes the following summary of the issues, contributing factors, and the City’s actions in addressing these issues.
Identified Fair Housing Issue Contributing Factors
Priority Level
(high, medium,
low*) Meaningful Actions
A. Concentration of minority,
low- and moderate-income
population, households
experiencing disproportionate
need and households with
displacement risk.
1. Lack of private investments
in specific neighborhoods.
2. Lack of public investments in
specific neighborhoods,
including services or
amenities.
3. The availability of affordable
units in a range of sizes and
prices.
4. Displacement of residents
due to economic pressures.
HIGH Fair housing issues A and B are closely related as such the action items are
grouped together. The concentration of minority, low- and moderate-income
population, and households experiencing disproportionate need and
displacement risk also affects access to opportunity. Many of the same
strategies (housing mobility strategies, new housing choices in areas of
opportunity and place-based strategies to encourage community revitalization)
address both issues (disproportionate housing need and disparities in access to
opportunity):
Housing Mobility Strategies:
• Affirmatively marketing available development sites to at least 2
affordable housing developers annually with a focus on City owned
(fully or partially) sites. Measurable Action: contact 2 developers and
B. Disparities in Access to
Opportunity
1. Lack of public investments in
specific neighborhoods.
HIGH
PAGE – 6.20 LAKE ELSINORE GENERAL PLAN
Identified Fair Housing Issue Contributing Factors
Priority Level
(high, medium,
low*) Meaningful Actions
2. Location of proficient schools
and school assignment
policies.
3. The availability, type,
frequency, and reliability of
public transportation.
4. Location of environmental
health hazards.
provide information on opportunity housing sites; Timeframe: By
December 2023, annually thereafter.
• Provide information to residents on the City’s website (in English and
Spanish) about the Lake Elsinore School District intra-district transfer
opportunities. Measurable Action: Create a webpage that includes this
information along with resources provide by the Lake Elsinore School
District for parents and students. Timeframe: Post on City website by
December 2023, annually thereafter.
Related program actions in other programs in this Housing Plan:
• Direct residents to national and regional mortgage assistance
programs, including but not limited to the Fair Housing Council of
Riverside’s First-Time Homebuyer workshops, Homebuyer Pre-
Purchase Consulting services, and Foreclosure Prevention/Loan
Modification Services. (See Program 10). Measurable Action: Post on
City website by January 2023;Timeframe: Ongoing.
• Reach out every other year to owners/developers of Specific Plans to
identify any issue that may be within the control of the City. The City
will address any identified issues. During the outreach process,
provide information to owners/developers about available housing
funds to assist in the development of affordable housing. (See
Program 20). Measurable Action: Post list of Specific Plan capacity and
entitlement levels (Table 4.6 in Chapter 4) on the City’s “Adopted
Specific Plans” webpage, Annual update of a Specific Plan entitlement
level list; contact 2 developers and provide information on opportunity
housing sites; Initiate contact with specific plan owners/developers
every two years; Timeframe: Ongoing; Post list of Specific Plan
capacity and entitlement levels (Table 4.6 in Chapter 4) on the City’s
“Adopted Specific Plans” webpage following Housing Element
adoption. Annual update of a Specific Plan entitlement level list;
Outreach to owners/developers every two years.
2021-2029 HOUSING ELEMENT PAGE – 6.21
Identified Fair Housing Issue Contributing Factors
Priority Level
(high, medium,
low*) Meaningful Actions
New Housing Choice in Higher Opportunity Areas:
• Ensure that all development applications are considered, reviewed,
and approved without prejudice to the proposed residents, contingent
on the development application’s compliance with all entitlement
requirements. Measurable Action: including a summary on the
outcome of development applications for affordable or special needs
housing in the APR; Timeframe: ongoing. Annually evaluate (as part of
the APR process) the outcome of development applications for
affordable or special needs housing.
• Apply for or support applications for affordable housing funds for
projects or programs that are consistent with the goals and objectives
of the Housing Element. Measurable Action: Apply for one funding
program per year; Timeframe: Ongoing.
• Ensure that low income and minority populations have equal access
and influence in the land use decision-making process through such
methods as bilingual notices, posting bilingual notices at development
sites, and conducting public information meetings with interpreters.
Prioritize community and stakeholder engagement specifically from
lower resources or DAC areas and to underrepresented groups by
recruiting them to participate in the public outreach process by
advertising through service providers and posting information on
social media in English and Spanish. Promote efforts to educate and
involve traditionally underrepresented populations in the public
decision-making process by recruiting residents or distributing
information on participation opportunities to residents in areas of
concentrated poverty to serve on boards, committees, task forces and
other local government decision-making bodies. Measurable action:
Post opportunities for participation in all known, upcoming vacancies
on Boards, Commissions and Committees on the City’s webpage and
PAGE – 6.22 LAKE ELSINORE GENERAL PLAN
Identified Fair Housing Issue Contributing Factors
Priority Level
(high, medium,
low*) Meaningful Actions
on social media in English and Spanish; Timeframe: Ongoing; Include in
staff reports regarding appointments a summary of the efforts that
were used to engage stakeholders. Post opportunities for participation
in the City’s Boards and Commissions on the City’s webpage and on
social media in English and Spanish every year following the City Clerk
public listing of all known, upcoming vacancies on Boards,
Commissions and Committees for the entire year (per the Maddy Act).
Initiate January 2023 and annually thereafter.
Related program actions in other programs in this Housing Plan:
• Make available on the City website and distribute to interested
developers and non-profit housing agencies a list of City-owned
property suitable for affordable housing projects and the Housing
Element which includes a residential sites inventory. Update the City-
owned property list regularly. (See Program 7). Measurable action:
create a list of City-owned property suitable for affordable housing
projects, update the City list every two years, provide incentives or
financial assistance for two affordable housing projects in the planning
period; Timeframe: List of City-owned properties upon Housing
Element Adoption; Update annually.
• Work with agencies and organizations to increase affordable housing
activities such as construction, rehabilitation, or financial assistance to
renters and owners. Provide a link to available housing programs for
residents and developers on the City website. Partnerships and
programs to continue and/or pursue include but are not limited to:
County of Riverside Housing Authority (City/County Mortgage
Revenue Bonds), County of Riverside Office of Economic Development
(First Time Home Buyer and Mortgage Certificate Program), California
Housing Finance Agency (CalHFA), and Habitat for Humanity. Pursue at
least two affordable housing project during the planning period. (See
Program 8). Measurable action: Coordinate with agencies and
2021-2029 HOUSING ELEMENT PAGE – 6.23
Identified Fair Housing Issue Contributing Factors
Priority Level
(high, medium,
low*) Meaningful Actions
organizations to produce two affordable housing projects during the
planning period; Timeframe: Ongoing; Web link to available housing
programs on the City website within one year; Assess the City’s role in
the new Western Riverside County Housing Finance Trust and explore
timeframes for leveraging funds to be used within the City.
• Work with the Housing Authority of the County of Riverside to
promote Housing Choice Voucher use in high resources area in the
City. Expand the location of participating voucher properties by adding
information for property owners and landlords to the City’s website
about participation in the Voucher program and advertising the
County’s Informational Seminars for Landlords. (See Program 13).
Measurable action: Preservation of 230 Housing Choice Vouchers
currently in use in Lake Elsinore; Timeframe: Ongoing; Add information
to the City’s website on participation in the Housing Choice Voucher
Rental Assistance Program within one year from Housing Element
adoption.
Place-based Strategies to Encourage Community Revitalization
• New specific plans or existing specific plans that includes a substantial
revision that are within “disadvantaged communities (DAC),” as
identified by CalEPA should address Environmental Justice goals and
include appropriate policies included in the Environmental Justice
Element. Measurable action: creation of Environmental Justice
assessments by applicants for specific plan application or significant
amendments within “disadvantaged communities (DAC)”;Timeframe:
assess DAC inclusion at the outset of development activity in Specific
Plan areas and require Environmental Justice assessment for specific
plans that are within “disadvantaged communities (DAC).”
• Pursuing funding and target neighborhoods of concentrated poverty
for investment in rehabilitation, parks, transit, and active
transportation. Ensure economic development plans reflect the needs
PAGE – 6.24 LAKE ELSINORE GENERAL PLAN
Identified Fair Housing Issue Contributing Factors
Priority Level
(high, medium,
low*) Meaningful Actions
of lower-opportunity neighborhoods. Measurable action: Evaluate
every two years the distribution of infrastructure and transportation
investment by high versus lower need areas. Assess need based on
DAC designation, poverty levels, and opportunity areas designations. If
evaluation shows uneven distribution of investment, identify action
items to make the distribution more equitable. submit one funding
application annually or 8 total; Timeframe: one funding application
annually; funding and investment evaluations: biennially.
• Adopt an Environmental Justice Element with a focus on identifying
steps/actions to address Census Tracts with a “Disadvantaged
Community” designation and environmental issue identification and
actions. Measurable action: creation and adoption of an
Environmental Justice Element; Timeframe: adoption by December
2022.
• Dedicate or seek funding to prioritize basic infrastructure
improvements generally provided by the City (e.g., street and sidewalk
improvements) and advocate for funding for basic infrastructure
improvements provided by out governmental units (e.g., water,
sewer) in disadvantaged communities. Measurable action: Implement
at least three infrastructure improvement projects during the planning
period in DACs; Timeframe: ongoing application for funding. (Also see
Program 9).
Related program actions in other programs in this Housing Plan:
• Continue using Code Enforcement to identify housing maintenance
issues and to expedite rehabilitation of substandard and deteriorating
housing by offering technical assistance or assistance referrals to
homeowners and occupants. (See Program 1). Measurable Action:
Rehabilitation assistance or assistance referrals to 16 lower-income
households (2 per year). Timeframe: Ongoing; Annual Quantification
2021-2029 HOUSING ELEMENT PAGE – 6.25
Identified Fair Housing Issue Contributing Factors
Priority Level
(high, medium,
low*) Meaningful Actions
of Cases/Inspection as part of the Annual Progress Report process;
applying/approving CDBG funding on an annual basis.
• Enforce the City’s Abandoned Residential Property Registration
Program (Chapter 8.60 of the Lake Elsinore Municipal Code). (See
Program 2) and encourage owners of houses and properties that
become vacant and abandoned due to foreclosure or other
circumstances to maintain or rehabilitate the properties. Measurable
Action: 25 new registrations (3 per year). Timeframe: Ongoing; Annual
quantification of new registrations and demolitions as part of the
Annual Progress Report process.
• Target acquisition and rehabilitation to vacant and blighted properties
in Downtown Lake Elsinore neighborhoods of concentrated poverty.
Pursue land purchases for residential development, redevelop tax-
delinquent properties, and consolidate parcels to create larger,
development ready pads in/near Downtown. (See Program 9).
Measurable Action: Complete two infill development projects in the
City’s historic Downtown; Assembly of two development ready pads
in/near Downtown; Review and revision of Downtown developments
standards within 3 years.
Strategies to Mitigate Displacement Risk:
• Evaluate all proposed amendments to the General Plan’s Land Use
Map and the Zoning Map for their effect on the City’s policy of
integrating diverse housing opportunities in each neighborhood or
planning district and on potential residential displacement.
Measurable Action: for all General Plan updates or Zoning
Amendments include in staff reports regarding appointments an
assessment of the negative and positive effects on the City’s
distribution of opportunity areas. Timeframe: Ongoing; provide
findings when any land use policy changes are evaluated such as a
PAGE – 6.26 LAKE ELSINORE GENERAL PLAN
Identified Fair Housing Issue Contributing Factors
Priority Level
(high, medium,
low*) Meaningful Actions
General Plan update or Zoning Amendment adoptions. Assess progress
in the City’s Annual Progress Report.
• (Also included under Housing mobility strategies): Affirmatively
marketing available development sites to at least 2 affordable housing
developers annually with a focus on City owned (fully or partially)
sites. Measurable Action: contact 2 developers and provide
information on opportunity housing sites; Timeframe: By December
2023, annually thereafter.
• (Also included under New Housing Choice in Higher Opportunity
Areas): Ensure that low income and minority populations have equal
access and influence in the land use decision-making process through
such methods as bilingual notices, posting bilingual notices at
development sites, and conducting public information meetings with
interpreters. Prioritize community and stakeholder engagement
specifically from lower resources or DAC areas and to
underrepresented groups by recruiting them to participate in the
public outreach process by advertising through service providers and
posting information on social media in English and Spanish. Promote
efforts to educate and involve traditionally underrepresented
populations in the public decision-making process by recruiting
residents or distributing information on participation opportunities to
residents in areas of concentrated poverty to serve on boards,
committees, task forces and other local government decision-making
bodies. Measurable action: Post opportunities for participation in all
known, upcoming vacancies on Boards, Commissions and Committees
on the City’s webpage and on social media in English and Spanish;
Timeframe: Ongoing; Include in staff reports regarding appointments a
summary of the efforts that were used to engage stakeholders. Post
opportunities for participation in the City’s Boards and Commissions on
the City’s webpage and on social media in English and Spanish every
year following the City Clerk public listing of all known, upcoming
2021-2029 HOUSING ELEMENT PAGE – 6.27
Identified Fair Housing Issue Contributing Factors
Priority Level
(high, medium,
low*) Meaningful Actions
vacancies on Boards, Commissions and Committees for the entire year
(per the Maddy Act). Initiate January 2023 and annually thereafter.
• (Also included under Place-based Strategies):New specific plans or
existing specific plans that includes a substantial revision that are
within “disadvantaged communities (DAC),” as identified by CalEPA
should address Environmental Justice goals and include appropriate
policies included in the Environmental Justice Element. Measurable
action: creation of Environmental Justice assessments by applicants for
specific plan application or significant amendments within
“disadvantaged communities (DAC)”;Timeframe: assess DAC inclusion
at the outset of development activity in Specific Plan areas and require
Environmental Justice assessment for specific plans that are within
“disadvantaged communities (DAC).”
Related program actions in other programs in this Housing Plan:
• Make available on the City website and distribute to interested
developers and non-profit housing agencies a list of City-owned
property suitable for affordable housing projects and the Housing
Element which includes a residential sites inventory. Update the City-
owned property list regularly. (See Program 7). Measurable action:
create a list of City-owned property suitable for affordable housing
projects, update the City list every two years, provide incentives or
financial assistance for two affordable housing projects in the planning
period; Timeframe: List of City-owned properties upon Housing
Element Adoption; Update annually.
• Work with agencies and organizations to increase affordable housing
activities such as construction, rehabilitation, or financial assistance to
renters and owners. Provide a link to available housing programs for
residents and developers on the City website. Partnerships and
programs to continue and/or pursue include but are not limited to:
County of Riverside Housing Authority (City/County Mortgage
PAGE – 6.28 LAKE ELSINORE GENERAL PLAN
Identified Fair Housing Issue Contributing Factors
Priority Level
(high, medium,
low*) Meaningful Actions
Revenue Bonds), County of Riverside Office of Economic Development
(First Time Home Buyer and Mortgage Certificate Program), California
Housing Finance Agency (CalHFA), and Habitat for Humanity. Pursue at
least two affordable housing project during the planning period. (See
Program 8). Measurable action: Coordinate with agencies and
organizations to produce two affordable housing projects during the
planning period; Timeframe: Ongoing; Web link to available housing
programs on the City website within one year; Assess the City’s role in
the new Western Riverside County Housing Finance Trust and explore
timeframes for leveraging funds to be used within the City.
• Work with the Housing Authority of the County of Riverside to
promote Housing Choice Voucher use in high resources area in the
City. Expand the location of participating voucher properties by adding
information for property owners and landlords to the City’s website
about participation in the Voucher program and advertising the
County’s Informational Seminars for Landlords. (See Program 13).
Measurable action: Preservation of 230 Housing Choice Vouchers
currently in use in Lake Elsinore; Timeframe: Ongoing; Add information
to the City’s website on participation in the Housing Choice Voucher
Rental Assistance Program within one year from Housing Element
adoption.
• Continue using Code Enforcement to identify housing maintenance
issues and to expedite rehabilitation of substandard and deteriorating
housing by offering technical assistance or assistance referrals to
homeowners and occupants. (See Program 1). Measurable Action:
Rehabilitation assistance or assistance referrals to 16 lower-income
households (2 per year). Timeframe: Ongoing; Annual Quantification
of Cases/Inspection as part of the Annual Progress Report process;
applying/approving CDBG funding on an annual basis.
• Target acquisition and rehabilitation to vacant and blighted properties
in Downtown Lake Elsinore neighborhoods of concentrated poverty.
2021-2029 HOUSING ELEMENT PAGE – 6.29
Identified Fair Housing Issue Contributing Factors
Priority Level
(high, medium,
low*) Meaningful Actions
Pursue land purchases for residential development, redevelop tax-
delinquent properties, and consolidate parcels to create larger,
development ready pads in/near Downtown. (See Program 9).
Measurable Action: Complete two infill development projects in the
City’s historic Downtown; Assembly of two development ready pads
in/near Downtown; Review and revision of Downtown developments
standards within 3 years.
• The City has promoted the development of accessory dwelling units
(ADUs) by updating its ADU ordinance in 2021 (Ordinance No. 1448)
which addresses the latest provisions in State law, including permit
streamlining processes required by law (AB 68 and AB 881). The City
will provide technical resources to interested property owners such as
an ADU Frequently Asked Questions handout that explains where
ADUs can be developed in Lake Elsinore and what development
standards they must adhere to. The City will create a webpage on the
City’s website with ADU resources. The City will also provide pre-
approved ADU development plans within three years and provide
written information at the City’s planning counter and website. (see
Program 19). Measurable Action: development of 50 ADUs (this
Objective is a subset of and not in addition to the Quantified Objective
for Program 16: Adequate Sites), update ADU Ordinance - within two
years of Housing Element adoption; ADU website and FAQ handout
within one year; preapproved ADU plans within three years
• The City will use available funding to support organizations that
address the needs of at-risk and homeless individuals and families
through assistance to non-profits serving the homeless population.
The City will annually contact service providers and share identified
levels of CDBG or other available funds (including City funds) for
homeless resources or housing programs. The City will continue
working with non-profit organizations that address homelessness to
aid residents in need and provide technical support (such as
PAGE – 6.30 LAKE ELSINORE GENERAL PLAN
Identified Fair Housing Issue Contributing Factors
Priority Level
(high, medium,
low*) Meaningful Actions
preapplication consultation, identification of available City funding or
incentives such as expedited permit processing, flexibility in
development standards and reduced, waived, or subsidized
development and impact fees) as needed and will cultivate a close
relationship with qualified and experienced non-profits to operate a
safe and secure crisis stabilization housing complex (The Anchor).
Measurable Action: Assist one non-profit organizations annually that
helps residents experiencing homelessness Ongoing funding for the
Lake Elsinore Homeless Task Force; applying/approving CDBG funding
for non-profit organizations on an annual basis. List of City-owned
properties appropriate for affordable or special needs housing by
December 2022; Annual contact with special needs stakeholders to
advertise available City funds if funding is available (including sharing
a list of City-owned properties that can be used for affordable or
special needs housing and available funding sources). Assist one non-
profit organizations annually that helps residents experiencing
homelessness.
C. Discrimination against
Persons with Disabilities
Land use and zoning laws LOW
This issue is
assigned a lower
priority because
these are tied to
changing State
laws and have
specific actions
that will be
implemented
early in the
planning period
• Ensure the definitions in the Lake Elsinore Municipal Code do not
distinguish the personal characteristics of persons with disabilities.
Measurable Actions:
o Revise the definition for Residential Care Facilities and clarify
siting for residential care facilities for 7 or more persons and
ensure that approval procedures do not constraint
development of housing for persons with disabilities.
o Revise the definition of “family” as well as establish a
definition for “household” that is flexible and includes a
variety of household types, consistent with State and federal
fair housing laws.
• Timeframe: zoning amendments within two years of Housing Element
adoption.
2021-2029 HOUSING ELEMENT PAGE – 6.31
Identified Fair Housing Issue Contributing Factors
Priority Level
(high, medium,
low*) Meaningful Actions
to directly
address these.
• Use local permitting and approval processes to ensure all new
multifamily construction meets the accessibility requirements of the
federal and State fair housing acts. Measurable Action: Approval of
projects the accessibility requirements of the federal and State fair
housing acts. Timeframe: ongoing.
• Refer residents involved in housing related civil disputes such as
landlord/tenant disputes and housing discrimination complaints to the
State Department of Fair Employment and Housing. Measurable
Action: Provide fair housing services to 100 residents during the
planning period. Timeframe: ongoing.
• Accommodate persons with disabilities who seek reasonable waiver or
modification of land use controls and/or development standards
pursuant to procedures and criteria set forth in the Municipal Code. In
2019, the City adopted an amendment to the LEMC (Title 17.415.150
Reasonable Accommodation) formalizing a reasonable
accommodation process. Measurable Action: post reasonable
accommodation procedures and related material on the City’s website
by December 2022.Timeframe: ongoing;
D. Siting and Standards for
Transitional and Supportive
Housing
Land use and zoning laws LOW
This issue is
assigned a lower
priority because
these are tied to
changing State
laws and have
Related program actions in other programs in this Housing Plan:
• Amend the City’s zoning regulations and make changes to ensure
compliance with Senate Bill 2 that requires that the City treat
transitional and supportive housing as a residential use and only
subject to those restrictions that apply to other residential dwellings
of the same type in the same zone (Government Code Section
65583(a)(5)). Measurable Action: Bring the City’s zoning regulations
into compliance with SB2, AB 2162, AB 101, AB 1397, and the
PAGE – 6.32 LAKE ELSINORE GENERAL PLAN
Identified Fair Housing Issue Contributing Factors
Priority Level
(high, medium,
low*) Meaningful Actions
specific actions
that will be
implemented
early in the
planning period
to directly
address these.
Employee Housing Act. Timeframe: review and revise within 2 years of
Housing Element adoption (See Program 22)
Note: Not all actions are included in Program 25. Some actions reference previous programs and the timeframe for implementation can be found under those programs.
* State law requires that prioritization of contributing factors giving highest priority to those factors that most affect fair housing choice or access to opportunity in Lake Elsinore.
Highest priority is given to the first two fair housing issues (concentration of minority, low- and moderate-income population and households experiencing disproportionate need
and displacement risk) and their associated contributing factors due to the number of residents these issues affect. The two other fair housing issues (discrimination against
persons with disabilities and siting and standards for transitional and supportive housing) are identified as having a lower priority not because they are not important, rather
because these are tied to changing State laws and have specific actions that will be implemented early in the planning period to directly address these.
Timeframe: Varies by action item, see actions above.
Responsible Agency: Administrative Services Department; Community Development Department – Planning, Building and Code Enforcement
Divisions;
Funding Source: Department Budget
Objective: Promote and affirmatively further fair housing opportunities for all persons.
2021-2029 HOUSING ELEMENT PAGE – 6.33
Summary of Quantified Objectives
Table 6.1 summarizes the City’s quantified objectives for the 2021-2029 planning period by
income group.
• The Construction Objective represents the City’s remaining (after counting as credit the units with
approved or issued permits) 2021-2029 RHNA of 6,555 units.
• The Rehabilitation Objective represents the combined objectives for the Code Enforcement,
Substandard and Abandoned Housing, and Housing Rehabilitation programs.
• The Conservation/Preservation objective refers to the preservation of the existing affordable
housing stock throughout the planning period (as listed in Table 2.7: Affordable Housing
Developments in the Housing Needs Assessment chapter).
Table 6.1: Summary of 2021-2029 Quantified Objectives
Income Level
Total
Extremely
Low
Very
Low Low Moderate
Above
Moderate
Construction Objective (Remaining
RHNA) 939 939 1,099 1,044 2,534 6,555
Rehabilitation Objective 66 0 0 66
Conservation/Preservation Objective 754 0 0 754
Total 3,797 1,044 2,534 7,375
Note: Pursuant to AB 2634, local jurisdictions are also required to project the housing needs of extremely low-income
households (0-30% AMI). In estimating the number of extremely low-income households, a jurisdiction can use 50% of the
very low-income allocation or apportion the very low-income figure based on Census data.
PAGE – 6.34 LAKE ELSINORE GENERAL PLAN
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