City of Lincoln
Housing Element
Prepared for the City of Lincoln by
Parsons
September 2002
Amended November 25, 2003
City Council Resolution No. 2003- 231
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NOVEMBER 25, 2003, AMENDMENT
TO ADOPTED 2002 HOUSING ELEMENT
Revisions to the adopted Housing Element incorporate changes in response to the California
Department of Housing and Community Development’s ( HCD) comment letter of January 2,
2003. These revisions are generally summarized as follows:
• Clarification describing the City’s permit processing procedures for variances and
encroachment permits in accommodating and meeting the needs of disabled persons or
households.
• Clarification of Policy 1, Action 1, that the 50 acres to be rezoned R- PD 20 and or
multiple Family Residential will allow multi- family residential uses by right.
• Clarification of the Conditional Use Permit process that specifically addresses how the
City’s requirements facilitate and encourage the development of emergency shelters and
transitional housing.
􀂙
Lincoln City Council
Primo Santini, Mayor
Spencer Short
Ray Sprague
Tom Cosgrove
Kent Nakata
Lincoln Planning Commission
Michael Roberts, Chairman
Dan Cross
Richard Wyatt
Allen Cuenca
James Webb
Eva Lena Durnell
Dennis Olsen
City Staff
Gerald F. Johnson, City Manager
Rodney Campbell, Community Development Director
George Dellwo AICP, Assistant Community Development Director
Prepared By
Parsons
Cotton/ Bridges/ Associates
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TABLE OF CONTENTS
INTRODUCTION .................................................................................................. 5
EVALUATION OF THE 1996 HOUSING ELEMENT............................................ 7
GOALS, POLICIES, AND PROGRAM ACTIONS................................................ 8
CITY AND COUNTY HOUSING PROGRAMS................................................... 30
QUANTIFIED OBJECTIVES .............................................................................. 34
PUBLIC PARTICIPATION.................................................................................. 37
INTERNAL CONSISTENCY OF GENERAL PLAN............................................ 38
APPENDIX A: HOUSING NEEDS ASSESSMENT............................................... 41
ENERGY CONSERVATION OPPORTUNITIES............................................... 126
APPENDIX B.................................................................................................... 128
APPENDIX C.................................................................................................... 146
APPENDIX D.................................................................................................... 147
APPENDIX E .................................................................................................... 148
APPENDIX F .................................................................................................... 149
APPENDIX G.................................................................................................... 150
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LIST OF TABLES
Quantified Objectives ( January 1, 2000 – June 30, 2007) .......................................... A- 35
Summary of Quantified Objectives by Policy/ Action Statement.................................. A- 36
Lincoln Population Growth .......................................................................................... A- 49
Lincoln and Placer County Population Growth 1990- 2020 ......................................... A- 50
Comparison of Race by City, County, and State Population....................................... A- 51
Age Distribution ( 2000) ............................................................................................... A- 51
Number of Persons per Household ( 1990) 1 ................................................................ A- 52
Household Composition by Type ( 2000)..................................................................... A- 53
Median Incomes in Lincoln and Placer County ( 1990)................................................ A- 53
Household Income ( 1990)........................................................................................... A- 54
Definitions Used for Comparing Income Levels .......................................................... A- 55
1990 Lincoln and Placer County Household Income Range by Income Category ..... A- 55
Placer County Income Limits ( 2001) ........................................................................... A- 56
Poverty Thresholds ( 2000).......................................................................................... A- 56
Lincoln 1990 Poverty Rates ........................................................................................ A- 57
Major Employers in the City of Lincoln........................................................................ A- 58
Occupational Employment ( 1999) and Wage Data ( 2000) 1 ........................................ A- 59
Employment Projections as Related to Job Growth ( 1997 – 2004) 1 ........................... A- 60
Pattern of Aging of the Lincoln Population .................................................................. A- 61
State Department of Social Services Licensed Elderly Care Facilities ....................... A- 62
Housing Occupancy ( 2000)......................................................................................... A- 71
Homeownership Rates by Age ( 1990) ........................................................................ A- 72
Tenure by Race and Hispanic Origin1 ( 1990) ............................................................. A- 73
Age of Housing Units .................................................................................................. A- 74
City Wide Housing Condition Survey Comparison...................................................... A- 75
Housing Related Code Violations ............................................................................... A- 75
Persons Per Room in All Occupied Housing Units ( 1990) .......................................... A- 76
Overcrowded Housing ( 1990) ..................................................................................... A- 77
Rental Rates for Apartments in Lincoln and Surrounding Cities ( October 2001)........ A- 78
2001 Fair Market Rents for Existing Housing in Placer County1 ................................. A- 78
Resale Home Prices in Lincoln ( September 2001) ..................................................... A- 79
New Home Sale Prices ( December 2001) 1 ................................................................. A- 80
Median Home Prices for Lincoln and Surrounding Areas ( November 2001) .............. A- 81
Number of Households Paying Over 30 Percent of Income on Housing .................... A- 82
Affordability of Rental Housing in Relation to Income 1990........................................ A- 83
Assisted Rental Units and Section 8 Units.................................................................. A- 86
Non- Profit Housing Organizations Interested in Acquiring At- Risk Rental Housing.... A- 87
Regional Housing Needs Plan ( 2000 – 2007)............................................................. A- 89
Residential Development Densities ............................................................................ A- 89
Residential Land Requirements1................................................................................. A- 90
City of Lincoln Vacant Land Summary........................................................................ A- 93
City of Lincoln Sites with Re- use and/ or Redevelopment Potential ............................ A- 97
Vacant Land – For Sale ............................................................................................ A- 102
Monthly Payments and Total Interest at Various Interest Rates ............................... A- 104
Lincoln Residential Zoning Requirements with Allowable Residential Development A- 110
Specific Plan and Planned Unit Development Residential Zoning Requirements .... A- 111
Application Processing Times ................................................................................... A- 115
Estimated Housing Needs by Income Category ....................................................... A- 144
Groups Contacted for Participation in Housing Element Update Process ................ A- 146
Sites with High- Density Residential Rezone Potential .............................................. A- 148
Sites with Residential Redevelopment Potential....................................................... A- 149
Application Fees........................................................................................................ A- 150
Residential Fees Paid to City of Lincoln for all New Single- Family Dwellings .......... A- 152
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1. INTRODUCTION
The Housing Element of the General Plan is a comprehensive statement by the City of
Lincoln of its current and future housing needs and proposed actions to facilitate the
provision of housing to meet those needs at all income levels. The purpose of the
Housing Element is to establish specific goals, policies and objectives relative to the
provision of housing, and to adopt an action plan to accomplish these intentions. In
addition, the Element identifies and analyzes housing needs, and resources and
constraints to meeting these needs.
California state law ( Government Code Sections 65580 through 65589) mandates the
contents of the housing element. By law, the housing element must contain:
• an assessment of housing needs and an inventory of resources and constraints
relevant to meeting those needs;
• a statement of the community's goals, quantified objectives, and policies relevant
to the maintenance, improvement and development of housing; and
• a program that sets forth a five- year schedule of actions that the local government
is undertaking or intends to undertake to implement the policies and achieve the
goals and objectives of the housing element.
The housing element must also:
• be consistent with other general plan elements;
• provide clear policy and direction for making decisions pertaining to zoning,
subdivision approval, housing allocations, and capital improvements;
• identify adequate residential sites available for a variety of housing types for all
income levels;
• assist in developing adequate housing to meet the needs of very low-, low- and
moderate- income households;
• address governmental constraints to housing maintenance, improvement, and
development;
• conserve and improve the condition of the existing affordable housing stock; and
• promote housing opportunities for all persons.
BASIS FOR THE CITY’S HOUSING GOALS
The 2002 Housing Element update reflects an evaluation of changes in community
conditions in Lincoln since the current Element was adopted in 1996, and recommends
modifications to programs contained in the Element because of that evaluation.
Information on community conditions and characteristics were collected and analyzed as
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part of the Housing Needs Assessment Report ( Appendix A). This report contains an
analysis of population and housing characteristics, identifies special housing needs for
certain population groups, evaluates housing conditions, analyzes employment trends,
and provides other important information to guide the goals, policies, and program
actions of this Element.
The City’s 2002 Housing Element is based on five goals that provide direction and
guidance for meeting the City’s housing needs over the next five years though 2007.
1. Accommodate new housing to meet the needs of present and future Lincoln
residents at all income levels.
2. Conserve and improve the existing housing stock and residential neighborhoods.
3. Address special housing needs in Lincoln.
4. Promote equal housing opportunity.
5. Evaluate the progress in implementing the City’s housing programs.
The findings listed below are based on information collected for the Housing Needs
Assessment Report ( Appendix A). These findings have been used by the City of Lincoln
to modify policies and programs in the 1996 Housing Element.
• Between 2000 and 2010, Sacramento Area Council of Governments ( SACOG)
projects Lincoln will experience a 240 percent growth rate.
• The median family income in Lincoln is roughly 79 percent of the countywide
median income.
• Persons age 65 and over represent 11 percent of Lincoln’s total population. This
demographic experienced a 63 percent increase in population between 1990 and
2000.
• Large family households represent approximately 13 percent of all households in
Lincoln. One- third of these large family households are renters who have the
highest rates of overcrowding ( defined by the U. S. Census as having more than
one person per room, excluding inhabitable spaces such as bathrooms, hallways,
and closets) and overpayment ( spending more than 30 percent of a households
total income on housing).
• Approximately 71 percent of very low- income households and 29 percent of low-income
households in Lincoln spend over 30 percent of their income on housing.
• A housing conditions survey conducted for the City concluded that six percent of
the housing stock in Lincoln is substandard and in need of rehabilitation.
• Less than one percent of existing homes sold in Lincoln during 2001 were
affordable to very low- income households, while six percent were affordable to
low- income households.
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2. EVALUATION OF THE 1996 HOUSING
ELEMENT
An important aspect of the Housing Element is an evaluation of achievements under the
policies and implementation programs included in the previously adopted Housing
Element. The evaluation provides valuable information on the extent to which programs
have been successful in achieving stated objectives and addressing local needs, and to
which these programs continue to be relevant to addressing current and future housing
needs in Lincoln. The evaluation provides the basis for recommended modifications to
policies and programs and the establishment of new objectives in the Housing Element.
The following is a summary of several of the City’s achievements under the 1996
Housing Element. A full analysis and evaluation of the City’s 1996 policies, program
actions, and objectives is included in Appendix B.
• Lincoln accommodated over 100 percent of the City’s 1990- 1996 SACOG
regional allocation; including 130 percent of the very low- income allocation, 270
percent of the low- income allocation, 268 percent of the moderate- income, and 76
percent of the above- moderate income allocation. The approval and construction
of three subsidized rental housing projects between 1994 and 2000 enabled the
City to exceed the very low- and low- income allocations.
• Since 1998, the City’s Housing Rehabilitation Program funded 16 housing
rehabilitation projects, with an additional five applications in process. Fourteen
of the 16 funded projects were financed with a combination of Community
Development Block Grant ( CDBG) funds and Redevelopment Agency housing
set- aside funds in a targeted area of the City. Two other projects and the five
applications in process were funded, or will be funded, through a combination of
Home Investment Partnership Program ( HOME) and Redevelopment Agency
funds. Of the 16 funded loans, nine participants were very low- income
households, five were over age 60, and six were disabled.
• A housing conditions survey was conducted in the fall of 2001, funded by a
CDBG Planning and Technical Assistance grant of approximately $ 18,500.
• The City adopted a density bonus ordinance to facilitate the development of
affordable housing to very low- and low- income households. To- date, the City
has not received any project applications that would bump up against the
maximum allowable density to qualify for a density bonus. The City encourages,
however, the use of density bonuses for the development of affordable housing
through providing interested parties with information and including a description
of the process and requirements in the general development application packet.
• The City has supported the development of six affordable multi- family rental
housing projects funded through tax credits, rural development units, Farmer’s
Home Section 515, and/ or Housing and Urban Development ( HUD) Section 8
certificates.
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3. GOALS, POLICIES, AND PROGRAM
ACTIONS
GOAL 1.
Accommodate new housing to meet the needs of present and
future Lincoln residents at all income levels.
Policy 1.
Provide sufficient land zoned for a variety of housing types to
accommodate the City’s regional housing needs allocation under the 2000-
2007 Sacramento Area Council of Governments Regional Housing Needs
Plan.
Action 1: Rezone a minimum of 50 acres of vacant land to R- PD- 20 ( i. e.
density equivalent to 20 dwelling units per acre) to
accommodate the City’s regional housing allocation for low-and
very low- income housing. The City of Lincoln has
identified rezonings, totaling 38.78 acres, that been completed
or are in process. These include:
1. Foskett Ranch – 8 acres ( completed)
2. Lincoln Crossing - 2.11 acres ( proposed additional
acreage)
3. Gladding McBean property - 10 acres ( proposed)
4. Aitken Ranch – 5.09 acres ( proposed)
5. Lakeside Six - 12.95 acres ( proposed)
The City also will ensure that 12 or more additional acres are
rezoned to R- PD- 20 in one or more of the following three areas:
1. 290- acre Foskett Ranch,
2. 156.46- acre Aitken Ranch,
3. 49.5- acre Gladding- McBean/ East Avenue parcel
The R- PD- 20 district is associated with planned unit
developments and is substantially similar to achievable
densities, height standards, parking, and setback requirements
as in the City’s Multiple Residential ( R- 3) District. Multifamily
housing is allowed by right in any PD combining district with
the R- PD- 20 designation. ( See Appendix A, page A- 56 for an
explanation of a Planned Development and the R- PD- 20 zoning
requirements and development standards).
Responsible Agency: Community Development Department, Planning Commission,
and City Council.
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Potential Funding
Sources:
General Fund.
Proposed Timing: December 2004. The General Plan Update is currently
underway and is anticipated to take up to 24 months to
complete. This action will occur subsequent to the General
Plan Update to be consistent with General Plan land use
designations. ( Note: eight acres have been rezoned to R- PD-
20 in the Foskett Ranch Specific Plan area.)
Action 2: Review the need to annex land outside the City limits after June
2007. If it is determined that additional land is needed to
accommodate new growth beyond 2007, consult with the
County and neighboring communities to discuss the
possibilities. After consulting with the County and neighboring
communities, initiate the annexation process and proceedings.
Responsible Agency: Community Development Department, Planning Commission,
and City Council.
Potential Funding
Sources:
General Fund.
Proposed Timing: 2004 – Review the need for annexations.
2005 – Consult with the County and surrounding communities.
2006 – Start the annexation process.
Policy 2.
Facilitate the construction of a variety of housing types affordable to all
income levels.
Action 1: Continue to permit Planned Unit Development ( PUD) zoning
that promotes a variety of housing types in the City through the
utilization of innovative development techniques and flexible
standards, such as: zero lot lines, clustering of development,
narrower streets, density bonuses, and fewer dedication
requirements.
Responsible Agency: Community Development Department.
Potential Funding
Sources:
General Fund ( for planning actions).
Proposed Timing: 2002- 2007.
Action 2: Continue bi- annual review of the building code, zoning
ordinance, subdivision ordinance, and processing procedures to
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identify and modify process requirements, approval of criteria,
and/ or fees that could create an impediment to the cost of
housing.
Responsible Agency: Community Development Department and City Council.
Potential Funding
Sources:
General Fund.
Proposed Timing: Every two years – 2002- 2007.
Action 3: Amend Title 18 ( Zoning) of the Lincoln Municipal Code to
establish standards for the development of second dwelling
units in all low- density residential districts in accordance with
Section 65852.2 of the California Government Code.
The City publicizes second units to developers and/ or other
interested parties by providing information concerning second
units in the City’s general development application packet, at
the Community Development Department’s counter, the City’s
website ( www. ci. lincoln. ca. us), and on the local community
access television channel.
Responsible Agency: Community Development Department, Planning Commission,
and City Council.
Potential Funding
Sources:
General Fund.
Proposed Timing: December 2003.
Action 4: Continue to allow manufactured housing units on permanent
foundations on single- family lots in accordance with state law
( Government Code Section 65852.7).
Responsible Agency: Community Development Department.
Potential Funding
Sources:
General Fund.
Proposed Timing: 2002- 2007.
Action 5: Amend Title 18 ( Zoning), to delete Chapter 18.60 ( Mobile
Home Certificates of Compatibility) of the Lincoln Municipal
Code. Through this action, the City will comply with the state
requirements by allowing manufactured homes in all single-family
districts.
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Responsible Agency: Community Development Department, Planning Commission,
and City Council.
Potential Funding
Sources:
General Fund.
Proposed Timing: December 2003.
Action 6: A. Amend Title 18 ( Zoning), Sections 18.14.010 and 18.16.010
of the City’s Municipal Code to allow mobile home parks as
a permitted use in the City’s Duplex Residential ( R- 2) and
Multiple Residential ( R- 3) Districts.
B. The City will contact the owner of the existing mobile home
park in the City, which is currently zoned Neighborhood
Commercial ( NC), to determine the most appropriate
residential zoning district to rezone the property ( R- 2 or R-
3). Once a determination has been made the City will
rezone the property accordingly as part of the
comprehensive rezoning process in December 2003.
Responsible Agency: Community Development Department, Planning Commission,
and City Council.
Potential Funding
Sources:
General Fund.
Proposed Timing: December 2003.
Action 7: Facilitate the development of market rate rental housing through
the following:
• use of housing set- aside funds for mixed income
housing projects that include units affordable to very
low- and low- income households;
• regulatory incentives, such as expediting permit
processing, deferred fees, and/ or parking requirements
based on the bedroom mix of the project; and
• provide a 25 percent density bonus when at least 20
percent of the units are affordable to low- income
households or 10 percent of the units are affordable to
very low- income households.
The City publicizes the above incentives for market rate
housing to developers and/ or other interest parties by providing
informational fliers at the Community Development
Department’s counter and in the general development
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application packet.
Responsible Agency: Community Development Department.
Potential Funding
Sources:
Redevelopment Agency set- aside funds for mixed income
projects.
Proposed Timing: 2002- 2007.
New Construction
Quantified Objective:
100 Low- Income Units, 200 Moderate- Income Units, and 200
Above Moderate- Income Units.
Policy 3.
New residential developments will include housing affordable to low- and
moderate- income households.
Action: Adopt an affordable housing policy as part of the General Plan
update, and amend Title 18 ( Zoning) of the Lincoln Municipal
Code to add an ordinance that implements the affordable
housing policy. This policy will be applied to all new planned
unit developments and specific plans. The ordinance will
specify a percentage of housing units, up to 10 percent, and the
proportion of low- and moderate- income units required in each
new planned development or specific plan project area.
The specific affordable housing requirements will be negotiated
for each residential development through a development
agreement. The City will consider one or more of the following
options to implement the affordable housing policy:
1. Each development will provide the specified percentage
of housing units affordable to low- and moderate-income
households without subsidies or regulatory
incentives; or
2. The City will provide financial and/ or regulatory
incentives to increase the feasibility of producing the
low- and/ or moderate- income housing, consistent with
state density bonus law; or
3. City will consider alternatives to providing affordable
housing, such as donation of land and/ or the payment of
an in- lieu fee that would result in an equivalent number
of low- and/ or moderate- income units constructed.
The City will advertise the affordable housing policy to
developers and/ or other interested parties through published
information available at the Community Development
Department’s counter, the City’s website
( www. ci. lincoln. ca. us), and on the local community access
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television channel.
Responsible Agency: Community Development Department, Planning Commission,
and City Council.
Potential Funding
Sources:
General Fund, CDBG, and Planning and Technical Assistance
( PTA) Grant.
Proposed Timing: December 2003.
Policy 4.
Require that new residential developments meet local and state
requirements for energy efficiency and mitigate adverse environmental
impacts.
Action 1: Continue to require environmental reviews on residential
development proposals to assess potential impacts as a result of
future development.
Responsible Agency: Community Development Department.
Potential Funding
Sources:
Application and Permit Fees.
Proposed Timing: 2002- 2007.
Action 2: Continue to enforce the energy conservation requirements of the
state building code standards ( Title 24 of the California Code of
Regulations), and continue to require fifteen- gallon shade trees
in all new residential developments ( Subdivision Ordinance,
Section 17.40.070 ( F)).
Responsible Agency: Community Development Department, Planning Commission,
and City Council.
Potential Funding
Sources:
Application and Permit Fees.
Proposed Timing: 2002- 2007.
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GOAL 2.
Conserve and improve the existing housing stock and
residential neighborhoods.
Policy 5.
Assist in the rehabilitation of substandard housing.
Action 1: Continue to implement the Redevelopment Agency’s Owner-
Occupied Housing Rehabilitation Program. This program is
currently available citywide for owner- occupied households
whose cumulative gross annual income( s) does not exceed 80
percent of the Placer County median income as published
annually by HUD. Assistance is provided through HOME loans
and can be financed one of three ways:
1. three percent interest amortized loan to the extent that an
amortized loan payment will not cause housing costs to
exceed 30 percent of annual income;
2. three percent simple interest with payments deferred for
up to 15 years in the event a household cannot afford a
fully amortized payment; or
3. two percent interest deferred payment loan for those
who are elderly ( 65+) or are permanently disabled.
Eligible repairs include ( listed by priority): health and safety
repairs, energy conservation, repairs that extend the useful life
of the property, and converting to current Uniform Building
Code standards.
The City publicizes the Redevelopment Agency’s Owner-
Occupied Housing Rehabilitation Program with the help of the
program’s contractor. Interested homeowners and other
applicable parties can acquire information about this program
through fliers at the Community Development Department’s
counter, the City’s website ( www. ci. lincoln. ca. us), and on the
local community access television channel.
Responsible Agency: CDBG/ HOME Program Contractor, Redevelopment Agency,
and Community Development Department.
Funding Source: HOME Grant and CDBG.
Housing
Rehabilitation
5 Very Low- Income Units and 15 Low- Income Units.
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Quantified Objective:
Proposed Timing: 2002- 2007.
Action 2: Continue to apply annually for HOME and CDBG grant monies
to rehabilitate both owner- and renter- occupied housing. These
grants would potentially be available for very low- and low-income
owner households and rental property owners with very
low- and low- income tenants.
Information on the most current programs available funded
through HOME and CDBG grant monies can be obtained at the
Community Development Department, through advertisements
on the local community access television channel, or on the
City’s website ( www. ci. lincoln. ca. us).
Responsible Agency: Redevelopment Agency and Community Development
Department.
Potential Funding
Sources:
HOME Program Grant and CDBG.
Housing
Rehabilitation
Quantified Objective:
20 Very Low- Income Units and 15 Low- Income Units.
Proposed Timing: Annually 2002- 2007.
Action 3: Refer Lincoln residents to agencies that provide home repair
services and/ or energy retrofit programs in Placer County, such
as Project Go, Inc.
Informational fliers on agencies that provide home repairs
and/ or energy retrofit programs can be obtained at the
Community Development Department.
Responsible Agency: Community Development Department.
Potential Funding
Sources:
General Fund.
Housing
Rehabilitation
Quantified Objective:
20 Very Low- Income Units and 15 Low- Income Units.
Proposed Timing: 2002- 2007.
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Policy 6.
Assist in the conservation and improvement of residential neighborhoods.
Action: Continue the City’s building code enforcement program for
residential housing units. The City’s full- time Code
Enforcement Officer manages code enforcement activities on a
case- by- case complaint basis.
Responsible Agency: Building Department, Community Development Department,
and City Council.
Potential Funding
Sources:
General Fund, Development Services Fund, and Redevelopment
Agency.
Proposed Timing: 2002- 2007.
Policy 7.
Ensure that neighborhoods have adequate public services and facilities
that comply with City standards.
Action: Continue to require the payment of impact fees and/ or other
mitigation standards as required by state law from the
construction of new developments for needed facilities,
services, utilities, and infrastructure improvements, such as
water/ sewer, roads, solid waste, and schools. The City will
review the amount of impact fees annually and make
recommendations to the City Council when changes are needed.
Responsible Agency: Community Development Department, City Council, Western
Placer Unified School District.
Potential Funding
Sources:
Application and Permit Fees.
Proposed Timing: Annually 2002- 2007.
Policy 8.
Preserve the affordability of subsidized rental housing to very low- and
low- income households.
Action: Annually monitor Golden Village apartments ( 50 units) for
Section 8 status, and prepare a plan for the preservation of these
units as affordable rental housing. The plan will state the City’s
proposed actions for assisting the current property owner in
preserving these affordable units, or assisting in the acquisition
of Golden Village by a non- profit entity dedicated to
permanently preserving the affordability of these rental units.
Responsible Agency: Community Development Department and City Council.
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Potential Funding
Sources:
Redevelopment Agency set- aside funds ( for monitoring).
Financial assistance for preservation: California Multifamily
Housing Program and HUD’s Office of Multifamily Housing
Restructuring ( assists in identifying and coordination programs
from federal agencies for the preservation of at- risk housing),
CDBG, and PTA Grant.
Proposed Timing: Annually review the California Housing Partnership list of units
potentially at- risk, and contact the property owner of the
specific rental housing project( s) at- risk to determine status.
Prepare action plan by December 2003.
GOAL 3.
Address special housing needs in Lincoln.
Policy 9.
Address the physical, financial, and lifestyle needs of older adults in the
City.
Action 1: Facilitate the construction of affordable rental housing for very
low- and low- income seniors. The following types of senior
housing are needed in Lincoln.
1. Rental housing affordable to persons earning between
50 and 80 percent of Placer County’s median income.
2. “ Continuum of care” housing that provides a range of
on- site services including independent living, assisted
living, and institutional care.
3. Market rate senior rental housing.
The City will provide assistance through the following financial
and regulatory incentives:
• use of housing set- aside funds for mixed income
housing projects that include units affordable to very
low- and low- income households;
• regulatory incentives, such as expediting permit
processing, deferred fees, and/ or parking requirements
based on the bedroom mix of the project;
• a 25 percent density bonus when at least 20 percent of
the units are affordable to low- income households or 10
percent of the units are affordable to very low- income
households; and
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• assistance in accessing state and/ or federal subsidies or
tax credit programs for new construction.
Responsible Agency: Community Development Department.
Potential Funding
Sources:
Redevelopment Agency set- aside funds, state and federal tax
credits, CDBG, and CDBG via Community Housing
Development Organization ( CHDOs).
New Construction
Quantified Objective:
130 Very Low- Income Units and 70 Low- Income Units.
Proposed Timing: 2002- 2007.
Action 2: Assist elderly homeowners in rehabilitating their homes to
address health and safety repairs, accessibility needs, and
energy efficiency improvements.
Refer to Policy 5 Action 1 for financial assistance programs.
Responsible Agency: Community Development Department and Redevelopment
Agency.
Potential Funding
Sources:
HOME Program, CDBG, and Redevelopment Agency set- aside
funds.
Housing
Rehabilitation
Quantified Objective:
6 Very Low- Income Units and 4 Low- Income Units.
Proposed Timing: 2002- 2007.
Policy 10.
Address the physical, financial, and supportive service housing needs of
persons with disabilities.
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Action 1: Facilitate the construction of subsidized rental housing
affordable to very low- and low- income persons that meets the
physical and supportive service needs of persons with
disabilities such as:
• handicapped accessibility;
• on- site supportive services and/ or daily living
assistance; and
• transportation.
The City publicizes financial and regulatory incentive
opportunities to developers and/ or other parties interested in the
construction of subsidized rental housing that meets the needs
of persons with disabilities by providing informational fliers at
the Community Development Department and in all general
development application packets.
Refer to Policy 9 Action 1 for City assistance with financial and
regulatory incentives.
Responsible Agency: Community Development Department.
Potential Funding
Sources:
Redevelopment Agency set- aside funds and state and federal
tax credits.
New Construction
Quantified Objective:
10 Very Low- Income Units and 5 Low- Income Units
Proposed Timing: 2002- 2007.
Action 2: Assist disabled homeowners in making modifications for
improved accessibility.
Refer to Policy 5 Action 1 for financial assistance programs.
Responsible Agency: Community Development Department and Redevelopment
Agency.
Potential Funding
Sources:
HOME Program, CDBG, and Redevelopment Agency set- aside
funds.
Housing
Rehabilitation
Quantified Objective:
7 Very Low- Income Units and 5 Low- Income Units.
Proposed Timing: 2002- 2007.
Action 3: Continue to allow dwelling groups ( i. e. group homes) and
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boardinghouses as a conditional use in the City’s R- 3 District
under Section 18.16.020 of the Lincoln Municipal Code.
Conditional use permits may be granted subject to the following
findings by the Planning Commission:
1. the use is substantially similar in characteristic to a use
or uses currently within the district;
2. the use would be appropriate in the district applicable to
the property as a permitted or conditional use; and
3. the use, with the appropriate conditions, will not be
detrimental to the health, safety, peace and morals,
comfort and general welfare of persons residing or
working in the neighborhood or be injurious to property
and improvements in the neighborhood or to the general
welfare of the City ( Section 18.56.020 of the Lincoln
Municipal Code).
Group homes and boardinghouses will not be subject to
additional requirements or conditions beyond what is set forth
in Section 18.56.020 of the Lincoln Municipal Code.
Responsible Agency: Community Development Department.
Potential Funding
Sources:
General Fund.
Proposed Timing: 2002- 2007.
Action 4: Amend Title 18 ( Zoning) to allow group homes/ residential
facilities of six or fewer persons as a permitted use by right in
all districts in which single- family homes are allowed. Subject
to the provisions of the Lincoln Municipal Code, group
homes/ residential facilities will be held to the same standards
and permit processing as single- family homes.
Responsible Agency: Community Development Department, Planning Commission,
and City Council.
Potential Funding
Sources:
General Fund.
Proposed Timing: December 2003.
Policy 11.
Address the special housing needs of large families to alleviate
overcrowding in the City.
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Action 1: Facilitate the construction of housing that includes three- and
four- bedroom units affordable to very low- and low- income
families.
The City publicizes financial and regulatory incentive
opportunities to developers and/ or other parties interested in the
construction of housing that includes three- and four- bedroom
affordable units by providing informational fliers at the
Community Development Department and in all general
development application packets.
Refer to Policy 9 Action 1 for City assistance with financial and
regulatory incentives.
Responsible Agency: Community Development Department.
Potential Funding
Sources:
Redevelopment Agency set- aside funds, state and federal tax
credits, CDBG, and CHDOs.
New Construction
Quantified Objective:
260 Very Low- Income Units and 425 Low- Income Units.
Proposed Timing: 2002- 2007.
Action 2: Continue to allow bedroom and bathroom additions under the
City’s Housing Rehabilitation Program.
Refer to Policy 9 Action 1 for City assistance with financial and
regulatory incentives.
Responsible Agency: Redevelopment Agency and Community Development
Department.
Potential Funding
Sources:
HOME Program, CDBG Housing Rehabilitation.
Housing
Rehabilitation
Quantified Objective:
2 Very Low- Income Units and 2 Low- Income Units.
Proposed Timing: 2002- 2007.
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Policy 12.
Address the financial, physical, and supportive service needs of female-headed
households in the City.
Action: Amend the Lincoln Municipal Code Section 18.34 ( Special
Uses) to establish standards and permitting procedures for child
day care facilities. The following table describes the
recommended permit requirements to be included in the zoning
ordinance amendment.
Residential Districts1 Commercial
Districts
Child Day Care
Facility
R- 1 R- 2 R- 3 RPD
1- 5
R- E BP C
Industrial
Districts2
Public/
Quasi-
Public
District
Open
Space
District3
Small Family
Day Care Home P P P P P N N N N N
Large Family
Day Care Home CUP CUP CUP CUP CUP N N N N N
Day Care Center CUP CUP CUP CUP CUP -- 4 -- 4 CUP CUP CUP
Employer-sponsored
Child
Care Center
N N N N N -- 4 -- 4 CUP CUP CUP
1Single- family residential dwellings in the Agricultural
( A- D)
Zoning District shall have the same permit requirements
as the
R- 1 District.
2Permit requirements apply to all industrial zoning
districts, with
the exception of the Industrial ( I) Zoning District, where
child
day care facilities are not permitted.
3Permit requirements apply to all open space zoning
districts,
with the exception of the Open Space Conservation ( OS-C)
Zoning District, where child day care facilities are not
permitted.
4New child day care uses in an existing structure require
Administrative Review and new day care facility
structures
require Design Review.
Permit Legend:
N: Use not permitted
P: Use permitted by right
AR: Use permitted with Administrative review
( Planning Staff and Community Development
Department
review for use to ensure compliance with applicable
provisions of Chapter 18.34)
DR: Use permitted with Design review
CUP: Use permitted with conditional Use Permit
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Development and operational standards are recommended as follows:
1. Small Family Day Care Homes
• Operate under the standards of state law that constitute an accessory use of a
residentially zoned and occupied property.
• Require a current license from the state.
• Home must contain a fire extinguisher and smoke detector.
• Operate in compliance with City’s Noise Ordinance.
• No signs for the day care use are permitted.
2. Large Family Day Care Homes
• Obtain a business license from the City and current license from the state.
• Day care use is secondary to the primary use of the property as a residence.
• Not to be located within 200 feet from an existing state licensed large family
day care home or employer- sponsored childcare center.
• Provide the equivalent of two loading/ unloading parking spaces and one
additional off- street parking space for each employee that does not reside at
the home.
• Day care home will comply with applicable City Noise Ordinances.
• No signs will be allowed in conjunction with the day care facility.
Responsible Agency: Community Development Department and City Council.
Potential Funding
Sources:
General Fund.
Proposed Timing: December 2003
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Policy 13.
Assist in the financial needs of low- income first- time homebuyers.
Action: Continue to implement the City’s First- Time Homebuyer
Assistance Program. This program is designed to provide
second mortgages that act as “ gap” financing, meaning the
second mortgage is making up the cost difference between what
the buyer can afford for a first mortgage and the price of a
home. The second mortgage is a “ silent” second ( i. e. payments
are deferred with a low interest rate until an agreed upon time
period ends or the home is sold).
Eligible participants must have an annual gross income at or
below 80 percent of the Placer County median income, adjusted
for family size, as defined by the Department of Housing and
Urban Development. This program is available citywide and
properties eligible include newly constructed or existing single-family
detached housing, condominiums, and mobile homes
placed on permanent foundations.
The City has established three main avenues for advertising the
First- Time Homebuyer Program under an affirmative fair
housing marketing plan.
1. Publish ads in the home or real estate sections of the
City’s newspaper offering free homebuyers seminars.
2. Distribute Spanish and English language flyers to local
community resource agencies and community groups
working with minority and low- income households.
3. Educate local real estate agents and lenders about the
program and provide first- time homebuyers seminars for
those who qualify through the Sacramento Home Loan
Counseling Center ( SHLCC).
Responsible Agency: Community Development Department, Redevelopment Agency,
and Mercy Housing California.
Potential Funding
Sources:
CDBG, HOME Grant, and MCCs.
First- Time Homebuyer
Quantified Objective:
25 Low- Income Units.
Proposed Timing: 2002- 2007.
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Policy 14.
Permit transitional housing and emergency shelters in appropriate
locations in the City.
Action 1: Amend the Lincoln Municipal Code ( Section 18.16.020) to
allow transitional housing through a conditional use permit
process in the City’s Multiple Residential District ( R- 3).
Conditional use permits may be granted subject to the following
findings by the Planning Commission:
1. the use is substantially similar in characteristic to a use
or uses currently within the district;
2. the use would be appropriate in the district applicable to
the property as a permitted or conditional use; and
3. the use, with the appropriate conditions, will not be
detrimental to the health, safety, peace and morals,
comfort and general welfare of persons residing or
working in the neighborhood or be injurious to property
and improvements in the neighborhood or to the general
welfare of the City ( Section 18.56.020 of the Lincoln
Municipal Code).
Transitional housing will not be subject to additional
development standards or conditions beyond those set forth in
Chapter 18.16 for the R- 3 zone and Section 18.56.020 of the
Lincoln Municipal Code. The conditional use permit process
acts to facilitate and encourage the development of transitional
housing through clear and unambiguous standards of the steps
in the application review process, basis for approval ( criteria),
and terms and conditions. ( See the Housing Needs Assessment
Report, page A- 63 for more information on the conditional use
permit process).
Responsible Agency: Community Development Department, Planning Commission,
and City Council.
Potential Funding
Sources:
General Fund.
Proposed Timing: December 2003.
Action 2: Amend the Lincoln Municipal Code ( Section 18.22.030) to
allow emergency shelters through a conditional use permit
process in the City’s Commercial ( C) District. Conditional use
permits may be granted subject to the following findings by the
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Planning Commission:
1. the use is substantially similar in characteristic to a use
or uses currently within the district;
2. the use would be appropriate in the district applicable to
the property as a permitted or conditional use; and
3. the use, with the appropriate conditions, will not be
detrimental to the health, safety, peace and morals,
comfort and general welfare of persons residing or
working in the neighborhood or be injurious to property
and improvements in the neighborhood or to the general
welfare of the City ( Section 18.56.020 of the Lincoln
Municipal Code).
Emergency shelters will not be subject to additional
development standards or conditions beyond those set forth in
Chapter 18.22 for the C District and Section 18.56.020 of the
Lincoln Municipal Code. The conditional use permit process
acts to facilitate and encourage the development of emergency
shelters through clear and unambiguous standards of the steps
in the application review process, basis for approval ( criteria),
and terms and conditions. ( See the Housing Needs Assessment
Report, page A- 63 for more information on the conditional use
permit process).
Responsible Agency: Community Development Department, Planning Commission,
and City Council.
Potential Funding
Sources:
General Fund.
Proposed Timing: December 2003.
Action 3: Amend Chapter 18.56 of the Zoning Ordinance, Conditional
Use Permits, to include specific criteria for the approval of use
permits for transitional housing and emergency shelters. In
addition to compliance with zoning and parking standards, such
criteria will address:
• hours of operation;
• external lighting and noise;
• provision of security measures for the proper operation and
management of a proposed facility;
• measures to avoid queues of individuals outside proposed
facilities;
• compliance with county and state health and safety
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requirements for food, medical, and other supportive
services provided on- site;
• maintenance in good standing of county and/ or state
licenses, if required by these agencies for the owner( s),
operator( s), and/ or staff of a proposed facility; and
• similar operations and management issues.
Responsible Agency: Community Development Department, Planning Commission,
and City Council.
Potential Funding
Sources:
General Fund.
Proposed Timing: December 2003.
GOAL 4.
Promote Equal Housing Opportunity.
Policy 15.
Support equal housing opportunities for all City residents.
Action 1: Continue to make available public information provided by
other public agencies and non- profit organizations on equal
housing opportunity, and make referrals to the District Office of
Fair Employment Housing and/ or Northern California Legal
Services when individuals have further questions or complaints.
The City will specifically support and promote equal housing
opportunity through the following:
• provide informational fliers and signage at the
Community Development Department’s counter and a
point- of- contact person for all equal housing opportunity
inquiries;
• post equal housing opportunity information of the City’s
website ( www. ci. lincoln. ca. us);
• annually distribute equal housing opportunity
information in City resident’s utility bill; and
• advertise the resources available to Lincoln residents
concerning equal housing opportunity on the local
community access television channel.
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Responsible Agency: Community Development Department.
Potential Funding
Sources:
General Fund.
Proposed Timing: 2002- 2007.
Action 2: Collect and review local financial lender’s Community
Reinvestment Act ( CRA) reports to determine their activities
within Lincoln and their corresponding rating from the federal
government. The City will use this information as one of the
criteria in the selection process when determining the use of an
outside financial institution to handle City business. If it is
determined that a specific lender did not receive a satisfactory
rating from the government, the City will weigh this to the
lenders disadvantage in the selection process.
Responsible Agency: Community Development Department.
Potential Funding
Sources:
General Fund.
Proposed Timing: Annually 2002- 2007.
GOAL 5.
Evaluate the progress in implementing the City’s housing
programs.
Policy 16.
Annually document the achievements and evaluate the effectiveness of the
City’s housing programs.
Action: Monitor and evaluate the performance of the City in
implementing the housing programs, and prepare a report to the
City Council. The report to the City Council will include:
1. documented achievements of the implementation of
goals, policies, and actions within the Housing Element;
2. an evaluation of the City’s performance in relation to the
quantified objectives within the Housing Element; and
3. if needed, recommendations for appropriate refinement
or revision as a result of the documented achievements
and evaluation.
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Per the City Council’s direction, the City will make the
appropriate modifications to the housing programs. Changes
because of this assessment do not necessarily have to be
amendments to the City’s Housing Element.
Responsible Agency: Community Development Department and City Council.
Potential Funding
Sources:
General Fund.
Proposed Timing: Annually 2002- 2007.
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4. CITY AND COUNTY HOUSING
PROGRAMS
LINCOLN HOUSING PROGRAMS
The City of Lincoln’s housing programs are targeted towards housing rehabilitation and
first- time homebuyer assistance and are administered by Mercy Housing California
through an agreement with the City. Funding for these programs are provided through
sources that include, but are not limited to: CDBG monies, HOME funds, and
Redevelopment Agency housing set- aside funds. As of June 30, 2001, the
Redevelopment Agency’s housing set- aside fund balance was $ 658,959. The City
officially updates this balance annually in June; however, the City estimated, as of
January 31, 2002, the housing set- aside balance was $ 543,959.
The City’s Redevelopment Agency is projected to accrue approximately $ 942,800 within
the 20 percent set- aside for housing during the planning period ( 2002 through 2007). It is
anticipated that the funding will generally be utilized in the following programs to assist
in development low and moderate housing over the planning period:
• CDBG Housing Rehabilitation Programs: $ 280,000; providing matching funds
for CDBG grants
• First- Time Homebuyer Programs: $ 210,000; providing matching funds for grants
• Agency assistance towards construction of units affordable to low and moderate
income households: $ 452,800
Housing Rehabilitation Programs
CDBG Housing Rehabilitation Program was started in March 1999 to offer eligible
households low- interest loans with flexible financing terms to make the necessary repairs
to their homes. To be eligible the property to be improved must be within the City’s
designated target area, and the gross household income must be at or below 80 percent of
the countywide median. Eligible repairs include roof repair or replacement, electrical or
plumbing work, kitchen and bathroom repairs, energy conservation measures, heating
and cooling system installation, water, sewer and electrical connections, bedroom
additions to relieve overcrowding, and any other Code related improvements. Total
CDBG funding equaled $ 375,668 with program administration costs. This program was
closed in December 2000, and the City has disencumbered $ 35,000 from the program
with approximately $ 30,000 in program income as of December 2001.
According to the City, during the life of this program Mercy Housing received numerous
calls from interested residents who lived within the City limits but not within the CDBG
target areas. For this reason the City chose to begin to apply for HOME funds so low-
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income residents throughout the City could make necessary health and safety repairs to
their homes.
HOME 2000 Owner- Occupied Housing Rehabilitation Program offers affordable home
repair loans to achieve cost- effective repairs for low- income owner- occupied households.
Total 2000 HOME funds have been granted in the amount of $ 278,000, and the City has
been funded for an additional $ 278,000 for the City’s HOME 2001 Rehabilitation
Program.
The HOME 2000 Rehabilitation Program is available citywide for owner- occupied
households whose cumulative gross annual income( s) does not exceed 80 percent of the
Placer County median income as published annually by HUD. Assistance is provided
through HOME loans and can be financed one of three ways:
1. three percent interest amortized loan to the extent that an amortized loan payment
will not cause housing costs to exceed 30 percent of annual income;
2. three percent simple interest with payments deferred for up to 15 years in the
event a household cannot afford a fully amortized payment; or
3. two percent interest deferred payment loan for those who are elderly ( 65+) or are
permanently disabled.
Eligible properties must consist of one- to four- unit housing, which includes the
following: traditional single- family housing, condominiums, and modular units placed
on permanent foundations.
Eligible repairs include ( listed by priority):
1. health and safety repairs ( e. g. correcting plumbing, electrical, structural,
mechanical, roof deficiencies, lead hazard evaluation and removal, and room
additions to resolve overcrowding);
2. energy conservation ( e. g. insulation, window/ door replacement, weather-stripping
and caulking, and replacing inefficient water heaters, ovens, furnaces,
and air conditioning appliances);
3. repairs that extend the useful life of the property ( e. g. repairing siding and
sheetrock, interior and exterior painting, replacing worn flooring, cabinets,
interior doors, gutters, foundation upgrades, and retaining walls); and
4. converting to current Uniform Building Code standards ( e. g. moving bathroom
access to hallways or off of kitchen, and stairs and porch upgrades).
The City, to the extent feasible, continues to foresee applying for HOME funds through
2007.
First- Time Homebuyer Program
2001 CDBG Grant has been funded in the amount of $ 250,000 for the purpose of
establishing a First- Time Homebuyer Program in the City of Lincoln. This grant
provides $ 212,705 in loan pool funds for homebuyer financing, $ 18,705 in funds for
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general administration and $ 18,500 in funds for activity delivery. Loan pool funds will
be used to provide approximately eight second mortgages with average loan amounts of
$ 30,000 each. Eligibility requirements for participants include:
• annual household income at or below 80 percent of the Placer County median
income, adjusted for family size;
• must be a homebuyer who will occupy the property as their primary residence;
and
• families are to be pre- qualified through local lenders.
Any home within the incorporated limits of Lincoln will be considered. Properties
eligible for this program include: single- family detached housing, condominiums, or the
replacement of an existing mobile home not on a permanent single- family lot foundation
with a new factory built home placed on a permanent foundation.
Using CDBG funds at the initial acquisition stage, this program enables families to pay
for purchasing and closing costs when buying a new home. It is anticipated that this
program will be market driven with local real estate agencies and lenders assisting in
selling eligible homes to qualified buyers.
The City has established three main avenues for advertising the First- Time Homebuyer
Program under an affirmative fair housing marketing plan.
1. publish ads in the home or real estate sections of the City’s newspaper offering
free homebuyers seminars.
2. Distribute Spanish and English language flyers to local community resource
agencies and community groups working with minority and low- income
households.
3. Educate local real estate agents and lenders about the program and provide first-time
homebuyers seminars for those who qualify through the Sacramento Home
Loan Counseling Center ( SHLCC).
PLACER COUNTY HOUSING PROGRAMS
Placer County’s housing programs are not available to residents in incorporated areas ( i. e.
City residents); however, Lincoln residents are eligible for the following two housing
programs as residents of Placer County.
United States Department of Agriculture ( USDA) Rural Development Loans and Grants
are made possible to Placer County residents through the USDA Rural Development
Department ( RDD). Loans and grants are available for home rehabilitation and repairs to
persons who own the home they live in and are low- income. Qualified persons can
receive a loan of up to $ 20,000, at 1 percent interest, to make needed improvements. In
addition, homeowners who are 62 years old or older may qualify for a once in a lifetime
grant of up to $ 7,500 to remove health or safety hazards from their homes. Contact RDD
for an application and more information about this program.
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Placer County Mortgage Credit Certificate ( MCC) Program offers financial help to
homebuyers wanting to purchase a new or existing home in Placer County. Mortgage
Credit Certificates reduce the amount of federal income tax one pays, thus allowing more
available income to qualify for a mortgage loan and to make monthly mortgage
payments. Eligible applicants must be a first- time homebuyer, occupy a home, and not
exceed the income and purchase price limitations. Applications for the MCC Program
are accepted through any of the participating lenders. For Lincoln residents the closest
lenders are located in the City of Roseville.
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5. QUANTIFIED OBJECTIVES
One of the requirements of state law ( California Government Code, Section 65583[ b]) is
that the Housing Element contains quantified objectives for the maintenance,
preservation, improvement, and development of housing. State law recognizes that the
total housing needs identified by a community may exceed available resources and the
community's ability to satisfy this need. Under these circumstances, the quantified
objectives need not be identical to the total housing needs. The quantified objectives
shall; however, establish the maximum number of housing units by income category that
can be constructed, rehabilitated, and conserved over a five- year period. Because the
SACOG Regional Housing Needs Assessment Plan covers a 7 ½ - year period, the
objectives for designating sites for new construction cover the period January 1, 2000 to
June 30, 2007 ( Table 1). The objectives for preservation and conservation cover the
period July 1, 2002 to June 30, 2007.
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Table 1
Quantified Objectives ( January 1, 2000 – June 30, 2007)
Very Low-
Income Low- Income Moderate-
Income
Above Moderate-
Income Total
2000- 2007 Regional Housing Needs Allocation
1,800 1,232 1,475 3,296 7,803
Units Constructed Between January 1, 2000 and February 22, 2002
0 164 1,646 1,398 3,208
Remaining Housing Needs Allocation to be Constructed by June 30, 2007
1,800 1,068 0 1,398 4,595
Quantified Objectives
Very Low-
Income Low- Income Moderate-
Income
Above Moderate-
Income Total
New
Construction
Total
4001 6001 3,500 3,500 8,000
Housing
Rehabilitation 202 152 -- 3 -- 3 35
Preservation
of At- Risk
Rental
Housing
504 0 0 0 50
First- Time
Homebuyer 0 255 0 0 25
Source: City of Lincoln and Parsons, February 2002.
1Based on affordable units built in the City over a 10- year period ( 1990- 2000) figuring an annual rate and projecting
that rate over the 7 ½ year planning period.
2Based on the City’s rehabilitation need and past rehabilitation activities funded through the 1998 CDBG grant and
2000 HOME grant.
3The City’s residential rehabilitation program targets only homeowners whose incomes are below 80 percent of the area
median income level, based on family size.
4Represents one affordable rental Complex ( Golden Village) with Section 8 contracts.
5Based on current funding and past activities of the City’s First- Time Homebuyer Assistance Program.
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Table 2
Summary of Quantified Objectives by Policy/ Action Statement
Income Affordability Categories
Policy/ Action
Very Low Low Moderate Above
Moderate
New Construction1
Policy 1 – Action 7 N/ A 100 Units 200 Units 200 Units
Policy 9 – Action 1 130 Units 70 Units N/ A N/ A
Policy 10 – Action 1 10 Units 5 Units N/ A N/ A
Policy 11 – Action 1 260 Units 425 Units N/ A N/ A
Total New Construction
Quantified Objective 400 Units 600 Units 3,500 Units 3,500 Units
Housing Rehabilitation2
Policy 5 – Action 1 5 Units 15 Units N/ A N/ A
Policy 5 – Action 2 20 Units 15 Units N/ A N/ A
Policy 5 – Action 3 20 Units 15 Units N/ A N/ A
Policy 9 – Action 2 6 Units 4 Units N/ A N/ A
Policy 10 – Action 2 7 Units 5 Units N/ A N/ A
Policy 11 – Action 2 1 Unit 1 Unit N/ A N/ A
Total Housing Rehabilitation
Quantified Objective 20 Units 15 Units N/ A N/ A
First- Time Homebuyer3
Policy 13 N/ A 25 Units N/ A N/ A
Total First- Time Homebuyer
Quantified Objective N/ A 25 Units N/ A N/ A
Source: City of Lincoln and Parsons, August 2002.
1The new construction quantified objectives do not fully account for the total quantified objective unit count in the
moderate- and above moderate- income categories because market conditions will facilitate the construction of these
units in Lincoln.
2The housing rehabilitation quantified objectives are not cumulative based on the potential for significant overlapping
of housing programs by one beneficiary. For example, an elderly homeowner may choose to rehabilitate their home
for energy efficiency improvements ( Policy 9 – Action 2), while also making modifications for improved accessibility
( Policy 10 – Action 2) through using the Redevelopment Agency’s Owner- Occupied Housing Rehabilitation Program
( Policy 5 – Action 1).
3The first- time homebuyer quantified objective assumes over the next 5 years a $ 2,000,000 pool of money ($ 1,000,000
CDBG and HOME and $ 1,000,000 MCC’s) will be available to fund 25 units at an average of $ 80,000 each.
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6. PUBLIC PARTICIPATION
State law requires cities and counties to make a “ diligent effort” to achieve participation
by all segments of the community in preparing a housing element ( Section 65583[ c][ 6] of
the California Government Code). This diligent effort translates into local jurisdictions
doing more than issue the customary public notices and conduct standard public hearings
prior to adopting a housing element. State law requires cities and counties to take active
steps to inform, involve, and solicit input from the public, particularly low- income and
minority households that might otherwise not participate in the process. Active
involvement of all segments of the community can include one or more of the following:
• outreach to community organizations serving low- income, special needs, and
underserved populations;
• special workshops, meetings, or study sessions that include participation by these
groups;
• establishment of an advisory committee with representatives of various housing
interests; and
• public information materials translated into languages other than English if a
significant percentage of the population is not English proficient.
To meet the requirements of state law in the preparation of the Lincoln Housing Element,
the City encouraged public participation from all segments of the community by
conducting a public workshop on November 6, 2001 at the McBean Park Pavilion. This
workshop was conducted early in the housing element process to discuss preliminary
findings and key community issues examined in the Housing Needs Assessment Report
( Appendix A). Despite the City’s outreach efforts to invite approximately 17 businesses
and community organizations known to the City to have an interest in affordable housing
issues and notify the public – only one person attended this workshop. The businesses
and organizations invited by the City included public service providers, churches,
developers, apartment managers, and non- profit housing advocates ( Appendix C). These
groups were notified to attend the workshop through a direct mailing. The public was
notified of the workshops through the publication of a notice in the Press Tribune. The
public workshop notice was also posted at City Hall one week prior to the workshop.
All public proceedings were conducted at the McBean Park Pavilion, which is accessible
to individuals with mobility impairments.
Specific public events related to the Housing Element included:
1. Citywide public workshop to discuss findings and key issues, conducted at the
McBean Park Pavilion on November 6, 2001.
2. Planning Commission hearing to recommend the adoption of the Draft Housing
Element and Certification of the Negative Declaration, conducted at the Lincoln
City Annex building on August 14, 2002.
3. City Council hearing to adopt the Draft Housing Element and Certification of the
Negative Declaration, conducted at the McBean Park Pavilion on September 10,
2002.
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7. INTERNAL CONSISTENCY OF GENERAL
PLAN
State Law requires that the housing element contain a statement of “ the means by which
consistency will be achieved with other general plan elements and community goals”
( California Government Code, Section 65583[ c][ 6][ B]. There are two aspects of this
analysis: 1) an identification of other general plan goals, policies, and programs that
could affect implementation of the Housing Element or that could be affected by the
implementation of the Housing Element, and 2) an identification of actions to ensure
consistency between the Housing Element and affected parts of other General Plan
elements. The 1988 Lincoln General Plan contains several elements the policies of which
relate to housing. These policies, and the method by which the City will achieve
consistency among them, are described below.
Land Use Element
The Land Use Element contains policies to enhance the quality of existing neighborhoods
through housing rehabilitation, code enforcement, neighborhood rehabilitation, and re-use
of historic structures. These policies complement Housing Element policies for
neighborhood preservation and housing rehabilitation.
Policies for new residential development include the promotion of a variety of residential
land use designations to meet future City needs; flexible approaches to development,
such as specific plans and planned unit developments; and joint planning for areas
contiguous to residential neighborhoods. The Land Use Element provides for residential
densities of up 20 dwelling units per acre. Density ranges for specific plan areas are
provided by the residential development standards included in those plans, but densities
designated for specific plan areas are consistent with the density ranges of the General
Plan. The City believes that the densities provided under the Land Use Element, and the
amount of land designated for various residential land uses, are sufficient to achieve
residential development objectives contained in the Housing Element, with one exception
descried below.
The City has identified a potential shortfall in the amount of land designated for high-density
residential use ( up to 20 units per acre). Implementation of the Housing Element
will involve the rezoning of land for high- density residential use. The City of Lincoln
has identified potential sites for such a change in land use:
1. 290- acre Foskett Ranch located west of downtown Lincoln and north of Nicolaus
Road;
2. 156.46- acre Aitken Ranch located south of the Auburn Ravine, west of Highway
65, and adjacent to the Lincoln Crossing Specific Plan area;
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3. 49.5- acre Gladding- McBean/ East Avenue parcel located on the northwest corner
of East Avenue and 9th Street; and
The potential partial redesignation of the City- owned property and the Gladding-
McBean/ East Avenue sites will require a change to the General Plan Land Use Map,
while the potential partial redesignation of the Foskett Ranch property will require a
General Development Plan amendment and an approval of an amendment of the General
Plan. The Aitken Ranch property is in the tentative map stage with the City’s
Community Development Department where potential zoning designations can be
modified.
The City is in the process of updating its General Plan. The potential partial land use
changes for the City- owned property and the Gladding- McBean/ East Avenue parcel will
occur subsequent to the General Plan Update to be consistent with General Plan land use
designations. The updated General Plan is expected to be adopted by June 2004,
allowing the City to complete a potential partial rezone of the City- owned property and
the Gladding- McBean/ East Avenue parcel by December 2004.
Open Space, Conservation, and Recreation Element
This element of the City’s General Plan contains policies to protect natural resource
areas, prime agricultural lands, and heritage oaks; manage drainage areas and floodplains;
encourage energy conservation; and require dedication of parkland in new residential
developments.
The City has determined that these policies are consistent with the Housing Element
because lands designated for residential development, particularly higher density
residential use, generally avoid these environmentally sensitive areas. To the extent that
environmentally sensitive areas occur on lands designated for residential use, the City
does not anticipate that they will impede the City’s ability to accommodate its regional
housing allocation.
The Housing Element promotes energy conservation through enforcement of state
building standards and the provision of financial assistance to homeowners unable to
afford energy efficiency improvements.
The policy of parkland dedication could increase the cost of developing affordable
housing by increasing land costs for development- ready sites. The Housing Element
includes policies to mitigate this potential impact through financial assistance for
affordable housing projects and/ or fee reductions.
Circulation and Transit Element
Policies in the Circulation and Transit Element require safe streets constructed to City
standards based on traffic impact studies, to maintain a minimum level of service “ C” for
City streets, and to promote alternative forms of transit ( including pedestrian and public
transit). These policies are consistent with the Housing Element because the City has
designated residential land uses in a manner to provide opportunities for alternative forms
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of transportation. The Housing Element includes policies that allow the City to approve
alternative street standards and other means of mitigating the cost of complying with
street improvement standards.
Community Safety Element
The Community Safety Element includes policies to protect residents and property from
natural and human- related dangers related to flooding, unstable soils, wildfire, natural
disasters, toxic materials, and the Lincoln Municipal Airport. The City has designated
the location and density of residential land uses, and requires compliance with
development standards, to avoid these hazards. The City does not believe that potential
safety risks will present significant impediments to the City’s achievements of its
Housing Element objectives.
Noise Element
Noise Element policies seek to protect residential development from traffic- related noise.
These policies will help the City achieve Housing Element policies for safe and sound
housing for all current and future Lincoln residents.
Redevelopment Element
The Redevelopment Element includes a policy for replacement housing when residential
displacement occurs. This will support achievement of Housing Element policies to
preserve and maintain the stock of affordable housing.
Public Services and Facilities Element
The Public Services and Facilities Element contains policies to ensure that public services
and facilities are in place to meet the needs of new residential development and to require
residential development to pay the cost of providing services and facilities, including
school facilities. These policies support the Housing Element’s objectives for
accommodating the City’s regional housing allocation by ensuring that land designated
for residential development has necessary services and facilities in place during the
period covered by the Sacramento Area Council of Government’s Regional Housing
Needs Plan.
The policy that new residential developments provide, or pay the cost of, services and
facilities may impact housing costs and the feasibility of affordable housing. To address
this impact, the Housing Element contains policies allowing the City to provide financial
assistance, or reduce or defer residential development impact fees, when necessary and
warranted to achieve the City’s housing objectives.
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APPENDIX A: HOUSING NEEDS
ASSESSMENT
INTRODUCTION ............................................................................................ A- 44
Summary Findings ............................................................................................................... A- 45
Population Trends ......................................................................................................... A- 45
Income and Poverty....................................................................................................... A- 45
Employment Trends ...................................................................................................... A- 45
Special Needs................................................................................................................ A- 46
Housing Characteristics................................................................................................. A- 46
Housing Costs and Affordability .................................................................................... A- 47
Opportunities and Constraints....................................................................................... A- 47
HOUSING NEEDS AND OPPORTUNITIES................................................... A- 49
Development History............................................................................................................ A- 49
Population Characteristics ................................................................................................... A- 49
Population Trends ......................................................................................................... A- 49
Ethnicity ......................................................................................................................... A- 50
Age of Population .......................................................................................................... A- 51
Household Type and Composition ................................................................................ A- 52
Income Characteristics......................................................................................................... A- 53
Poverty........................................................................................................................ .. A- 56
Employment Trends............................................................................................................. A- 57
Area Employment Profile............................................................................................... A- 58
Special Needs ...................................................................................................................... A- 60
Elderly........................................................................................................................ ... A- 60
Mobility and Self- Care Limitations................................................................................. A- 63
Families with Female Heads of Households ................................................................. A- 64
Large Families ............................................................................................................... A- 65
Farmworkers.................................................................................................................. A- 65
Homeless....................................................................................................................... A- 66
Agencies Offering Public Assistance to Homeless........................................................ A- 66
Housing Characteristics ....................................................................................................... A- 68
Housing Composition .................................................................................................... A- 68
Housing Occupancy ...................................................................................................... A- 70
Vacancy .................................................................................................................. A- 70
Homeownership ...................................................................................................... A- 71
Tenure..................................................................................................................... A- 73
Age and Condition of Housing Stock............................................................................. A- 73
Overcrowding................................................................................................................. A- 76
Housing Costs ............................................................................................................... A- 77
Rental Apartments .................................................................................................. A- 77
Mobile Home Parks................................................................................................. A- 78
Home Prices............................................................................................................ A- 78
Surrounding Area Home Prices .............................................................................. A- 80
Lower Income Households Overpaying ........................................................................ A- 81
Affordability Trends........................................................................................................ A- 82
Assisted Housing Projects ................................................................................................... A- 84
Assisted Rental Housing Eligible for Conversion .......................................................... A- 84
Future Housing Needs ......................................................................................................... A- 88
Future Development Potential ............................................................................................. A- 90
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Areas with Potential for Residential Development ........................................................ A- 90
Sites with Redevelopment Potential.............................................................................. A- 95
CONSTRAINTS............................................................................................ A- 101
Non- Governmental Constraints ......................................................................................... A- 101
Land Costs................................................................................................................... A- 101
Construction and Labor Costs..................................................................................... A- 102
The Cost and Availability of Financing ........................................................................ A- 103
Governmental Constraints ................................................................................................. A- 104
Land Use Controls....................................................................................................... A- 105
Planned Development........................................................................................... A- 106
Permitted Uses in Residential Zoning Districts ........................................................... A- 108
Existing Infrastructure.................................................................................................. A- 113
Public Services ............................................................................................................ A- 113
Building Codes and Enforcement................................................................................ A- 113
Site Improvements....................................................................................................... A- 114
Development Fees ...................................................................................................... A- 114
Local Government Processing .................................................................................... A- 114
Permit Processing Procedures.................................................................................... A- 114
Conditional Use Permit Process ........................................................................... A- 116
Housing for Persons with Disabilities .......................................................................... A- 117
Procedures for Ensuring Reasonable Accommodations ...................................... A- 117
Efforts to Remove Regulatory Constraints for Persons with Disabilities .............. A- 118
Accommodation for Zoning, Permit Processing, and Building Codes .................. A- 118
Zoning and Other Land Use Regulations ............................................................. A- 119
Permits and Processing ........................................................................................ A- 119
Building Codes...................................................................................................... A- 120
Universal Design Element..................................................................................... A- 120
Conclusion ............................................................................................................ A- 121
Second Unit Requirements.......................................................................................... A- 121
Manufactured Housing and Mobile Home Park Standards ......................................... A- 121
Parking Requirements................................................................................................. A- 122
Design Review............................................................................................................. A- 122
Administrative Design Review .............................................................................. A- 123
Design Review Board............................................................................................ A- 124
ENERGY CONSERVATION OPPORTUNITIES........................................... A- 126
General Design Standards................................................................................................. A- 126
LIST OF TABLES
A- 1 Lincoln Population Growth ........................................................................................ A- 49
A- 2 Lincoln and Placer County Population Growth 1990- 2020 ....................................... A- 50
A- 3 Comparison of Race by City, County, and State Population .................................... A- 51
A- 4 Age Distribution ( 2000).............................................................................................. A- 51
A- 5 Number of Persons per Household ( 1990) ............................................................... A- 52
A- 6 Household Composition by Type ( 2000)................................................................... A- 53
A- 7 Median Incomes in Lincoln and Placer County ( 1990).............................................. A- 53
A- 8 Household Income ( 1990) ......................................................................................... A- 54
A- 9 Definitions Used for Comparing Income Levels ........................................................ A- 55
A- 10 1990 Lincoln and Placer County Household Income Range ..................................... A- 55
A- 11 Placer County Income Limits ( 2001) ......................................................................... A- 56
A- 12 Poverty Thresholds ( 2000) ........................................................................................ A- 56
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A- 13 Lincoln 1990 Poverty Rates ...................................................................................... A- 57
A- 14 Major Employers in the City of Lincoln...................................................................... A- 58
A- 15 Occupational Employment ( 1999) and Wage Data ( 2000) ....................................... A- 59
A- 16 Employment Projections as Related to Job Growth.................................................. A- 60
A- 17 Pattern of Aging of the Lincoln Population ................................................................ A- 61
A- 18 State Department of Social Services Licensed Elderly Care Facilities ..................... A- 62
A- 19 Housing Estimates for the City of Lincoln ( 1990 through 2001)................................ A- 69
A- 20 Housing Estimates for Placer County ( 1990 through 2001)...................................... A- 70
A- 21 Housing Occupancy ( 2000)....................................................................................... A- 71
A- 22 Homeownership Rates ( 1990)................................................................................... A- 72
A- 23 Homeownership Rates by Age ( 1990) ...................................................................... A- 72
A- 24 Tenure by Race and Hispanic Origin ( 1990)............................................................. A- 73
A- 25 Age of Housing Units................................................................................................. A- 74
A- 26 City Wide Housing Condition Survey Comparison.................................................... A- 75
A- 27 Housing Related Code Violations.............................................................................. A- 75
A- 28 Persons Per Room in All Occupied Housing Units ( 1990)........................................ A- 76
A- 29 Overcrowded Housing ( 1990) ................................................................................... A- 77
A- 30 Rental Rates for Apartments in Lincoln and Surrounding Cities............................... A- 78
A- 31 2001 Fair Market Rents for Existing Housing in Placer County ................................ A- 78
A- 32 Resale Home Prices in Lincoln ( September 2001) ................................................... A- 79
A- 33 New Home Sale Prices ( December 2001) ................................................................ A- 80
A- 34 Median Home Prices for Lincoln and Surrounding Areas ......................................... A- 81
A- 35 Number of Households Paying Over 30 Percent of Income on Housing.................. A- 82
A- 36 Lincoln Housing Expenditure Rate per Income Group ( 1990) .................................. A- 82
A- 37 Affordability of Rental Housing in Relation to Income 1990...................................... A- 83
A- 38 Sold Units Affordable to Lower- Income Households ( 2001) ..................................... A- 84
A- 39 Assisted Rental Units and Section 8 Units................................................................ A- 86
A- 40 Housing Organizations Interested in Acquiring At- Risk Rental Housing................... A- 87
A- 41 Regional Housing Needs Plan ( 2000 – 2007)........................................................... A- 89
A- 42 Residential Development Densities........................................................................... A- 89
A- 43 Residential Land Requirements ................................................................................ A- 90
A- 44 City of Lincoln Vacant Land Summary ...................................................................... A- 93
A- 45 Sites With Re- use and/ or Re- development Potential................................................ A- 47
A- 46 Vacant Land – For Sale........................................................................................... A- 102
A- 47 Monthly Payments and Total Interest at Various Interest Rates............................. A- 104
A- 48 Residential Zoning Requirements with Allowable Residential Development.......... A- 110
A- 49 Specific Plan and PUD Residential Zoning Requirements ..................................... A- 111
A- 50 Application Processing Times ................................................................................. A- 115
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INTRODUCTION
The Housing Needs Assessment analyzes population and housing characteristics, identifies
special housing needs among certain population groups, evaluates housing conditions, and
provides other important information to support the goals, policies, and programs to meet the
needs of current and future Lincoln residents.
The United States Census, completed every ten years, is an important source of information for
the Housing Needs Assessment. Results from the 2000 Census are being released over a two-year
period starting in the summer of 2002. At the time this document was prepared, however,
only general population and housing unit information was available. For this reason, many of
the citations for Census information are from 1990. The order of magnitude of the current
housing needs in relation to those of a decade ago may become more apparent, however, when
income, poverty, housing cost, and other information is made available relating to current unmet
housing needs ( such as overcrowding and overpayment). The data presented in the Housing
Needs Assessment will not only guide the development of housing goals and policies, but will
also be integrated into the body of the Housing Element to present the current status of housing
and housing related issues in the City of Lincoln.
The needs assessment is organized into four data sections. The first section focuses on
demographic information, such as population trends, ethnicity, age, household composition,
income, employment, housing characteristics, general housing needs by income, and housing
needs for special segments of the population. This first section outlines the characteristics of the
community, and identifies those characteristics that may have significant impacts on housing
needs in the community.
The second section identifies the City's resources, and the historic development patterns and
housing opportunities in the community. It also discusses the City’s existing housing stock and
the potential areas for future housing development.
The next section discusses the governmental and non- governmental constraints to housing
development in Lincoln. The City has planning, zoning, and building standards that guide and
affect residential development patterns and that influence housing availability and affordability.
There are also environmental and housing market conditions that affect the location, availability,
affordability, and type of housing that is constructed in Lincoln. The “ non- governmental”
influences include such factors as the availability and cost of financing, land, and materials for
building homes; natural conditions that affect the cost of preparing and developing land for
housing; and the business decisions of individuals and organizations in home building, finance,
real estate, and rental housing that impact housing cost and availability.
The final section of the Needs Assessment discusses opportunities for energy conservation,
which can reduce costs to homeowners and infrastructure costs to the City. With a reduction in
basic living costs through energy savings, more households will be better able to afford adequate
housing.
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Summary Findings
The following is a summary of findings from the Housing Needs Assessment Report.
Population Trends
• Lincoln’s population is expected to grow steadily over the next 20 years, continuing the
demand for a variety of housing types and costs. Sacramento Area Council of
Governments ( SACOG) projects that the City of Lincoln will experience a 240 percent
growth rate between 2000 and 2010. By comparison, the growth rate in Lincoln between
1990 and 2000 was 54 percent.
• Lincoln’s ethnic composition in 2000 was primarily Non- Hispanic White ( 70 percent)
and Hispanic or Latino ( 26 percent). Between 1990 and 2000 the percentage of Non-
Hispanic Whites decreased by 3 percent, while the percentage of Hispanics or Latinos
increased by 1 percent.
• The City of Lincoln has a slightly higher percentage of persons under 18 and a slightly
lower percentage of persons 65 years and over than the countywide and statewide
averages. Family households represented 78 percent of all households in Lincoln in
2000, compared to 73 percent countywide. The majority of the City’s family households
have children.
Income and Poverty
• Residents of Lincoln, and Placer County, have differing income characteristics. The
median family income in Lincoln is roughly 79 percent of the countywide median
income. According to the 1990 Census, 33 percent of countywide households earn
$ 50,000 or more compared to 19 percent of all households in Lincoln.
• The poverty rate in Lincoln was 9 percent in 1990, above the countywide poverty rate of
7 percent. Native American residents and female- headed households with children in
Lincoln had the highest poverty rates at 23 percent and 25 percent respectively.
Residents 65 years of age or older had relatively lower poverty rates at 10 percent.
Employment Trends
• Employment data from the U. S. Census and the California Employment Development
Department ( EDD) suggest that the majority of Lincoln residents are employed in
occupations related to retail, services, general office personnel, and technical fields.
• Over the next five years, new employment is forecasted to be concentrated in retail and
services industries, light manufacturing, distribution, and technology related fields.
Many of these jobs will pay wages or salaries in the low- to moderate- income level for
single- wage earner households. This employment growth will contribute to a continuing
need for additional affordable housing for such income groups.
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Special Needs
• As the current population ages, Lincoln will experience an increase in the number of
older adults with special housing needs over the next 20 years. Persons age 65 and over
represent 11 percent of Lincoln’s total population, and experienced a 63 percent increase
in population between 1990 and 2000. The housing needs among older adults in Lincoln
are: 1) financial support for low- income seniors who do not own their homes, 2)
financial assistance for home maintenance and repairs among low- income senior
homeowners, 3) assisted care living facilities for those who have self- care and mobility
limitations, 4) affordable independent living rental housing, and 5) financial assistance
for home modifications for those with minor self- care or mobility concerns.
• Non- elderly individuals with disabilities also have financial and physical needs.
Although the number of such individuals represents a small percentage of all residents,
their needs frequently remain unmet by the private market.
• Female- headed households represent 12 percent of all households in Lincoln, and of
these households 329, or 64 percent, were female- headed households with minor
children. Poverty rates among female- headed households are generally higher than the
general population, and female- headed households with minor children in Lincoln have
the highest poverty rate of any population group ( 25 percent). Many female- headed
householders have extremely low incomes and they will continue to require significant
financial assistance or subsidized rental housing. Single mothers with minor children
face additional challenges in finding affordable family housing of suitable size.
• Large family households in Lincoln represent approximately 13 percent of all
households. One- third of these large family households are renters and have the greatest
unmet housing needs due to high rates of overcrowding and overpayment.
• According to available information and contacts with service providers, the level of, and
need for, homelessness services in the City is low.
Housing Characteristics
• The majority of the City’s housing stock consists of single- family detached homes ( 75
percent). According to the 2000 Census, the percentage of homeowners among Lincoln
households ( 67 percent) falls below that of households countywide ( 73 percent).
• Homeownership in the City is highest among persons age 55- 64 at 82 percent. In 1990,
persons of Hispanic origin comprised 25 percent of the population and represented 22
percent of homeowners.
• Most of Lincoln’s housing stock— just over 85 percent— is less than 30 years old. Well
over half of the City’s housing was constructed since the 1990s. According to the City of
Lincoln, between 1990 and 2001, 4,771 new units were added to the City’s housing
stock, more than doubling the number of housing units.
• According to the 2001 Housing Conditions Survey, 6 percent of the housing stock in
Lincoln is considered substandard and in need of rehabilitation.
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• Of the City’s occupied housing units approximately 7 percent were overcrowded,
compared to 3 percent countywide. This represents a higher rate of overcrowding in the
City of Lincoln than in the county. Overcrowding occurred more often in rental housing
( 10 percent) than owner- occupied housing ( 7 percent).
Housing Costs and Affordability
• In 1990, 33 percent of all rental housing in Lincoln was affordable to very low- income
households, and 73 percent were affordable to low- income households. Currently, six
out of the seven apartment complexes in the City have some type of rental subsidy. Of
the approximate 810 units citywide this equates to roughly 70 percent, or 570 units,
having rent restrictions affordable to very low- and low- income households.
• The majority of rental units in Lincoln are two- and three- bedroom units.
• Approximately 71 percent of very low- income households and 29 percent of low- income
households spend over 30 percent of their income on housing in Lincoln.
• In 2001, the median price for resale homes in Lincoln was between $ 25,000 and $ 90,000
lower than the surrounding communities of Rocklin, Roseville, Wheatland, and Loomis.
• New tract home sale prices in Lincoln range from the upper $ 100,000s to the mid- to
upper $ 200,000s. Homes for sale in Sun City Lincoln Hills, an age- restricted
community, range from the upper $ 100,000 to the mid- to upper $ 300,000s.
• Even with Lincoln’s relatively lower housing prices in the region, few very low- or low-income
households can afford to own a home in the City without financial assistance.
Based on the total resale homes in 2001, less than 1 percent of the homes were affordable
to very low- income households, while 6 percent were affordable to low- income
households. Generally, only households with incomes above the countywide median can
afford to purchase a new home in Lincoln.
Opportunities and Constraints
• SACOG has determined that Lincoln has a housing construction need of 7,803 units for
the planning period 2000- 2007. Of the total 7,803 units, 23 percent should be affordable
to very low- income households, 16 percent to low- income households, 19 percent to
moderate- income households, and 42 percent to above moderate- income households.
Very low- and low- income housing needs represent 3,032 housing units of the City’s
total housing allocation.
• The City’s vacant land within residential districts can accommodate up to 2,189 new
dwelling units at densities potentially affordable to low- or very low- income households.
• A gap of 843 units remains in the City’s ability to accommodate 100 percent of its very
low- and low- income housing need based on the availability of multi- family zoned land.
The City of Lincoln has identified four parcels as having more than sufficient vacant land
available to accommodate the rezoning of a total of 50 acres to R- PD- 20, at an average
construction density of 18 units per acre.
• Lincoln’s zoning regulations and development permit processes do not create
unreasonable restrictions to the City’s ability to accommodate affordable housing, as
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illustrated by affordable housing constructed over the past several years. The City
permits a range of residential densities that, with lower land and development costs than
many other Placer County communities, should be sufficient to accommodate all income
groups.
• The time required in the City of Lincoln for development approval is not generally a
constraint or substantial cost to housing developers.
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HOUSING NEEDS AND OPPORTUNITIES
DEVELOPMENT HISTORY
The City of Lincoln, one of six cities in Placer County, is located in the Sacramento Valley, 25
miles north of Sacramento. Originally laid out in 1859 by Theodore Judah, a pioneer in
California who was a major advocate for a trans- continental railroad, Lincoln was named for
Charles Lincoln Wilson. Mr. Wilson was instrumental in the construction of the California
Central Railroad, which ran from Folsom to Roseville Junction and then on to Lincoln. By 1950,
the number of people living in Lincoln was 2,410. During the 1950s, 60s and 70s the population
growth remained relatively constant, however, by 1980 the City of Lincoln’s population had
doubled in size.
Although Lincoln grew only moderately for many years, it now appears that Lincoln is in a
growth phase. Growth and development in Lincoln is expected to increase dramatically over the
next 10 to 20 years. This expansion is primarily due to Lincoln’s location within the rapidly
growing South Placer County area. With several planned developments and specific plan
projects approved in Lincoln, the City anticipates additional development proposals for single-and
multi- family projects. Improvement of roadways within the past five years has also
increased the accessibility of Lincoln to surrounding communities. Lincoln is now becoming an
attractive community for workers who commute to nearby cities because of the expansion of
roadway infrastructure. Industries and business owners have also relocated to Lincoln because
of the roadway improvements and its location along a transportation corridor.
POPULATION CHARACTERISTICS
Population Trends
Between 1990 and 2000 Lincoln experienced a 54 percent rate of growth, which was moderately
higher than Placer County’s growth rate of 43 percent ( Table A- 1). Much of the population
growth experienced by Lincoln during the past ten years is a result of a number of factors.
Among these are: 1) increased awareness of Lincoln’s resources by businesses and developers,
2) a progressive city council and professional city management, 3) the attractiveness of a small
town atmosphere, the expansion of new industry, 4) the modernization of the Lincoln Airport,
and 5) new housing developments. Future projections of population trends in Lincoln indicate a
rapidly growing community.
Table A- 1
Lincoln Population Growth
1990 2000 Percent Change
City 7,248 11,205 54%
County 172,796 248,399 43%
Source: 1990 and 2000 Census.
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Table A- 2 includes the Sacramento Area Council of Governments ( SAGOG) projections for the
City and County through 2020. For the City of Lincoln, SACOG has projected a 240 percent
growth rate between 2000 and 2010 and a 48 percent increase between 2010 and 2020. In Placer
County, SACOG has projected a 35 percent growth rate increase between 2000 and 2010 and an
18 percent growth rate increase between 2010 and 2020. According to SACOG projections, the
City of Lincoln is expected to reach a population of over 56,000 by 2020.
Between 1990 and 2000, the number of households increased from 2,514 to 3,874 ( 54 percent) in
Lincoln. SACOG projects a dramatic increase in the number of households by 2010 ( 15,351
households or a 400 percent increase) and 21,699 in 2020 ( 41 percent increase).
Between 1990 and 2000, the number of persons per household is projected to increase slightly in
Lincoln, from 2.85 to 2.86. By comparison, the number of persons per household in Placer
County is projected to decrease slightly from 2.66 to 2.63.
By 2010, however, the average household size in Lincoln is projected to decrease to 2.49, but
then rebound to 2.58 by 2020. As a whole, SACOG projects that Placer County will experience
a similar increase in the average household size, from 2.63 in 2000 to 2.69 in 2010.
Table A- 2
Lincoln and Placer County Population Growth 1990- 2020
19901 20001 20102 20202
Population
Lincoln 7,248 11,205 38,350 56,575
Placer County 172,796 248,399 336,805 396,785
Households
Lincoln 2,514 3,874 15,351 21,699
Placer County 64,101 93,382 87,234 100,785
Persons per Household
Lincoln 2.85 2.86 2.49 2.58
Placer County 2.66 2.63 2.69 2.69
Source: 1990 and 2000 Census and SACOG Projections 2001.
1 1990 and 2000 Census Data.
2 SACOG Projections 2001.
Ethnicity
An analysis of Lincoln’s population between 1990 and 2000 shows the percentage of Non-
Hispanic Whites decreased by 3 percent, while the percentage of Hispanics or Latinos increased
by 1 percent ( Table A- 3). All other racial and ethnic groups remained a small part of the City’s
population. Comparably in 2000, Placer County had a larger percentage of Non- Hispanic
Whites ( 83 percent) than Lincoln ( 70 percent), and a significantly smaller percentage of Hispanic
or Latino ( 10 percent) than Lincoln ( 26 percent).
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Table A- 3
Comparison of Race by City, County, and State Population
Race Lincoln
1990
Lincoln
2000
Placer County
2000
California
2000
Non- Hispanic
White 73% 70% 83% 47%
Black < 1% < 1% < 1% 6%
Native American < 1% < 1% < 1% 1%
Asian/ Pacific
Islander < 1% 1% 3% 11%
Other Race < 1% < 1% < 1% < 1%
Two or More
Races1 - 2% 2% 3%
Hispanic or Latino 25% 26% 10% 32%
Source: 1990 and 2000 Census.
1This is a 2000 Census category only.
Age of Population
A comparison of the ages among the City, County, and State populations shows general
similarities ( Table A- 4). Overall, the City of Lincoln has a younger population, with a median
age of 32 compared to 38 for all of Placer County and 33 for all of California. Individuals under
20 years of age comprised 33 percent of the City’s population in 2000, compared to roughly 30
percent county and statewide. Conversely, 11 percent of Lincoln’s residents were over 65 in
2000, compared to 13 percent countywide. The larger percentage of minors in Lincoln is
consistent with the higher percentage of families with children ( see Table A- 6, page A- 9).
Table A- 4
Age Distribution ( 2000)
Age Lincoln
2000
Placer County
2000
California
2000
Under 5 years 8% 7% 7%
5 to 19 years 25% 22% 23%
20 to 34 years 21% 16% 22%
35 to 54 years 26% 33% 29%
55 to 64 years 9% 9% 8%
65 and over 11% 13% 11%
Median age 32 38 33
Source: 2000 Census.
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Household Type and Composition
Further insight into the characteristics of the City’s population can be gained by examining
household composition, such as the proportion of families with children, single adults, and single
parents.
Lincoln’s population increased slightly faster than the number of households during the 1990s
due to increasing household sizes. While the population increased by 55 percent, so too did the
number of households, by 54 percent, from 2,514 to 3,874. Of the 2,514 households in 1990,
Table A- 5 shows that the highest percentage consisted of one- and two- person households ( 20
and 31 percent respectively). The next largest percentage was three- person households ( 19
percent). The highest percentage of households in Placer County consisted of two- person
households ( 36 percent) followed by one- person households ( 19 percent). The City of Lincoln
also had a higher percentage of households with four to six persons ( 28 percent) than the County
( 26 percent).
Table A- 5
Number of Persons per Household ( 1990) 1
Lincoln
1990
Placer County
1990
1 Person 20% 19%
2 Persons 31% 36%
3 Persons 19% 18%
4 Persons 17% 17%
5 Persons 8% 7%
6 Persons 3% 2%
7+ Persons 2% 1%
Source: 1990 Census.
12000 Census information was not available as of April 2002.
In addition to household size, household composition provides important indicators of population
characteristics and trends ( Table A- 6). The 2000 Census reported that 78 percent of all
households in Lincoln were family households and of that 76 percent were married- couple
households. Compared to the countywide population, Lincoln has a slightly higher percentage of
family households and families with children. Although most people lived in family households,
22 percent of households in Lincoln were non- family households, primarily single adults
( including seniors), but also other unrelated individuals. By comparison, the 2000 Census
reported that 73 percent of all households in Placer County were family households, and of these
households, an overwhelming 82 percent were married- couple households.
The 2000 Census records persons living within group quarters separately and considers them to
be non- family households. The City of Lincoln had a reported 114 persons living within group
quarters, all of whom being institutionalized.
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Table A- 6
Household Composition by Type ( 2000)
Household Type NumCbiteyr of HousCeohuonldtys PercCeitnyt of HouCseohuonltdys
Total Households 3,874 93,382 - -
Family Households 3,033 67,742 78% 73%
Married Couple Family Households
With Children
Without Children
2,306
1,119
1,187
55,494
25,392
30,102
76% 82%
Other Family Households
With Children
Without Children
727
329
398
12,248
5,333
6,915
24% 18%
Non- family Households 841 25,640 22% 27%
Living Alone
Householders 65 and over
Householders under 65
666
263
403
19,860
7,588
12,272
79% 77%
Others 175 5,780 21% 23%
Group Quarters ( Non- Family Households)
Institutionalized persons 114 1,819 100% 63%
Other persons in group quarters - 1,069 - 37%
Total 114 2,888 100% 100%
Source: 2000 Census.
INCOME CHARACTERISTICS
According to the 1990 Census, the median household income in the City of Lincoln was
$ 29,517, while the median family income was $ 33,776 ( Table A- 7). In comparison, the median
household income in Placer County was $ 37,601 and the median family income was $ 42,805.
This indicates that incomes in Lincoln were roughly 80 to 90 percent of the countywide income.
In 1990, 4 percent of Lincoln households had incomes above $ 75,000, compared to 14 percent
countywide. A greater number ( 41 percent) of Lincoln households had incomes below $ 25,000
in 1990, compared to households countywide ( 32 percent).
Table A- 7
Median Incomes in Lincoln and Placer County ( 1990)
Lincoln Placer County Lincoln as a
Percent of County
Median Household Income $ 29,517 $ 37,601 79%
Median Family Income $ 33,776 $ 42,805 79%
Median Non- Family Income $ 18,309 $ 20,313 91%
Source: 1990 Census.
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Table A- 8 shows the distribution of incomes in 1990 for the City of Lincoln and Placer County.
Roughly one- third of the households in the County were earning incomes over $ 50,000,
compared to 19 percent of households in Lincoln.
Table A- 8
Household Income ( 1990)
Income
1990 Percent of Total
Households in
Lincoln
1990 Percent of Total
Households in
Placer County
Under $ 5,000 3% 3%
$ 5,000 to $ 14,999 18% 14%
$ 15,000 to $ 24,999 20% 15%
$ 25,000 to $ 34,999 16% 15%
$ 35,000 to $ 49,999 24% 20%
$ 50,000 to $ 54,999 5% 5%
$ 55,000 to $ 59,999 3% 4%
$ 60,000 – $ 74,999 7% 10%
$ 75,000 – $ 99,999 3% 8%
$ 100,000 – $ 124,999 1% 3%
$ 125,000 - $ 149,999 -- 1%
$ 150,000 or more -- 2%
Source: 1990 Census.
Although 2000 Census data is not yet available for income, residential development trends and
housing prices in Lincoln compared to other growing communities in Placer County suggests
that the median income in Lincoln is probably still below the countywide median, and the
percentage of low- income households is above the countywide level.
Four income categories are typically used for comparative purposes that are based on a
percentage of the county median income and adjusted for household size. These categories are
referred to as “ very low- income,” “ low- income,” “ moderate- income,” and “ above moderate-income.”
The median income on which these four categories are based represents the mid- point at which
half of the households earn more and half earn less. In a normally distributed population ( that is,
one not skewed to either end of the income scale), approximately 40 percent of the population
will have income within the very low- and low- income ranges, about 20 percent within the
moderate- income range, and about 40 percent in the above moderate- income range.
The standard definition used by the Federal Department of Housing and Urban Development
( HUD) of income categories are as follows: households earning 50 percent of the median
household income or less are classified as very low- income; households earning 51- 80 percent of
the median household income are classified as low- income; households earning 81- 120 percent
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of the median household income are moderate- income; and households earning greater than 120
percent of the median household income are above moderate ( Table A- 9).
Table A- 9
Definitions Used for Comparing Income Levels
Income Definitions
Very Low- Income 50 percent or less of the Placer County Median Income
Low- Income 51 to 80 percent of the Placer County Median Income
Moderate- Income 81 to 120 percent of the Placer County Median Income
Above Moderate- Income 121 percent or greater of the Placer County Median Income
Source: HUD Income Limits, 2001.
Table A- 10 provides the percentages of Placer County and Lincoln residents that are within these
income ranges. Placer County is closer to a normally distributed population than Lincoln
because of its much larger population— about 38 percent of the population countywide is within
the very low- and low- income ranges, 22 percent within the moderate- income range, and 40
percent in the above moderate- income range. Lincoln’s population is weighted toward the lower
end of the income scale, with the very low- and low- income populations comprising 51 percent
of all households and an above- moderate income population comprising only 26 percent of all
households.
Table A- 10
1990 City of Lincoln and Placer County
Household Income Range by Income Category
Income
Category
1990 Income
Range
Lincoln
Percent of Households in
1990 ( approximately)
Placer County
Percent of Households in
1990 ( approximately)
Very Low
Income
$ 0 - $ 18,800 25% 20%
Low Income $ 18,801 - $ 30,080 26% 18%
Moderate
Income
$ 30,081 - $ 45,120 23% 22%
Above
Moderate
Income
$ 45,121 and over 26% 40%
1990 Lincoln City Median Income: $ 29,5171 1990 Placer County Median Income: $ 37,6011
2000 Lincoln City Median Income:-- 2 2001 Placer County Median Income: $ 56,3003
Source: 1990 and 2000 Census and 2001 HUD Income Limits.
1.1990 Census Median Income.
2.2000 Census Median Income was not available as of March 2002.
3.2001 HUD Income Limits.
Another measure of changes in estimated income is the annual release of income limits prepared
by HUD and adopted by the State of California for determining eligibility for various housing
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programs. These limits define the dollar amount of each of the four income levels discussed
previously ( very low, low, moderate, and above moderate) based on a percentage of the
estimated median income for the county in which the jurisdiction is located. Although these
income limits are not based on actual surveys of local incomes, the annual changes can show
trends in estimated changes among different regions of the State. Table A- 11 provides limits for
Placer County for 2001. According to HUD, the estimated 2001 median income for a family of
four in Placer County is $ 56,300.
Table A- 11
Placer County Income Limits ( 2001)
Household Size Very Low- Income
( 50% of Median)
Low- Income
( 80% of Median)
1 Person $ 19,700 $ 31,550
2 Persons $ 22,500 $ 36,050
3 Persons $ 25,350 $ 40,550
4 Persons $ 28,150 $ 45,050
5 Persons $ 30,400 $ 48,650
6 Persons $ 32,650 $ 52,250
7 Persons $ 34,900 $ 55,850
8 Persons $ 37,150 $ 59,450
Source: HUD, 2001.
Poverty
The poverty level of income is a federally defined measure of the minimum income needed for
subsistence living. The poverty level is an important indicator of severe financial distress, and
the rate of poverty in a community ( proportion of the population with poverty level incomes or
less) provides important information about individuals and families in greatest financial need.
The dollar threshold for poverty is adjusted each year by the federal government for household
size and composition. Table A- 12 provides year 2000 poverty thresholds for several types of
households.
Table A- 12
Poverty Thresholds ( 2000)
Single Person 65+ $ 8,259 Two Adults, One Child $ 13,861
Single Person Under 65 $ 8,959 One Adult, Three Children $ 17,524
Two Persons 65+ $ 10,409 Two Adults, Two Children $ 17,463
Two Persons Under 65 $ 11,531 One Adult, Four Children $ 20,236
One Adult, Two Children $ 13,874 Two Adults, Three Children $ 20,550
Source: 2000 Census.
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According to the 1990 Census, approximately 9 percent of the City’s population was below the
poverty level, compared to 7 percent countywide ( Table A- 13). Of individuals in households
with income below the poverty level, persons age 65 and over had a poverty rate of 10 percent,
under 65, 9 percent, 18 and under 11 percent, and female- headed households with children
( primarily mothers with no spouse present) 25 percent. In most communities, seniors typically
have below- average rates of poverty compared to the population as a whole, and female- headed
households with children typically have the highest rate of poverty. Other groups with
significantly higher poverty rates included individuals of Hispanic origin and Native Americans
( who comprise a very small percentage of the total population in Lincoln).
Table A- 13
Lincoln 1990 Poverty Rates
Above Poverty
Level
Below Poverty
Level Pover