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Housing Element Update 2022

The Housing Element 2022 Update was adopted in January 2023 and is San Francisco’s plan for meeting our housing needs for the next 8 years (January 31, 2023 to January 31, 2031). It is the City’s first housing plan centered on racial and social equity. Its policies and programs express San Francisco’s collective vision for the future of housing, guiding policymaking, housing programs, and the allocation of resources.

 

State Housing Element law requires all local governments to plan for the housing needs of their residents every eight years by ensuring adequate opportunities for housing development exist within the city and including policies and programs to address the following:

  • address, remove, or mitigate governmental and non-governmental constraints to housing production;
  • affirmatively further fair housing (AFFH) by addressing exclusion, segregation, and access to opportunity;
  • address environmental justice issues;
  • provide equal housing opportunities for San Francisco residents;
  • assist in the development of housing;
  • improve and conserve existing housing stock; and
  • preserve units at-risk of conversion from affordable to market rate.

To better fulfill these mandates, particularly AFFH requirements, and to comply with the Planning Commission Resolution No. 20738 to center the Planning Department’s work in racial and social equity, the 2022 Update became San Francisco’s first housing plan centered on racial and social equity. The 2022 Update includes goals, objectives, policies, and implementing programs that describe how San Francisco can address its housing needs and improve equity outcomes.

The five goals of the 2022 Update are:

  1. Recognize the right to housing as a foundation for health, and social and economic well-being
  2. Repair the harms of racial and ethnic discrimination against American Indian, Black, and other people of color
  3. Foster racially and socially inclusive neighborhoods through equitable distribution of investment and growth
  4. Provide sufficient housing for existing residents and future generations for a city with diverse cultures, family structures, and abilities
  5. Promote neighborhoods that are well-connected, healthy, and rich with community culture

As part of the 2022 Update, San Francisco had to analyze how it could accommodate the Regional Housing Need Allocation (RHNA), which is developed on an eight-year cycle by our regional planning agency, the Association of Bay Area Governments (ABAG), along with the state Department of Housing Community Development (HCD) and Department of Finance (DOF). San Francisco’s RHNA allocation for the 2023-2030 cycle is 82,069 housing units divided into very low, low, moderate, and above moderate income categories. The 2022 Update includes a sites inventory and analysis of constraints as well as policies and programs to ensure the city can support the production of this housing.

The 2022 Update relied on robust public outreach and engagement to develop the policies and implementation programs that replaced the 2014 Housing Element. This extensive outreach was accompanied by required analysis of San Francisco’s housing needs, an assessment of fair housing, the sites inventory analysis, the analysis of governmental and non-governmental constraints, and an evaluation of the 2014 Housing Element. An environmental impact report and an environmental justice analysis were also completed for the plan. See the Adoption tab to see all relevant documents.

To learn more about how the Planning Department is implementing the 2022 Update on our Housing for All webpage.

Adopted Housing Element 2022 Update (January 31, 2023)

Year 2019 2020 2021 2022
Quarter Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4
Learning from Past Efforts Summarize key policy ideas from past projects and initiatives Public announcement, website launch, traditional media, etc.  
  Analize Documents  
  Environmental Justice Analysis  
Vetting Key Ideas with the Community   Gather community and stakeholder input on key policy ideas and housing needs, challenges and opportunities  
    Develop the first draft of policy updates based on community input  
Refining Policies Together   Review the first draft of policy updates with the public and community stakeholders  
    Incorporate public input and publish the second draft of policy updates  
    Review the second draft of policy updates with the public and community stakeholders  
    Incorporate public input and create the third draft  
    Environmental Review: public scoping and analysis  
Moving Towards Adoption   Environmental Review: draft document, public process, and certification
  Review of third draft by the State Department of Housing and Community Development (HCD)  
  Revise third draft based on HCD comments and publish final draft  
  Public hearings for the final draft of the Housing Element 2022 Update
  Final draft of the Housing Element 2022 Update due to HCD (1/31/2023)
  Complete the Adoption at the Board of Supervisors

The Housing Element 2022 Update used a variety of outreach and engagement tools to ensure participation was diverse and inclusive to reach residents throughout San Francisco; all materials and events were offered in multiple languages to ensure access to information. Given the plan’s focus on racial and social equity, outreach and engagement emphasized reaching communities that had not been as actively engaged in previous Housing Element updates and elevate those voices, including American Indian, Black and other communities of color, low-income communities, immigrant residents, and other populations most vulnerable to housing insecurity.

The table below shows the four phases of public outreach and engagement performed to update the Housing Element 2022 Update.

Phase Intent Outreach Tools Outcome
Learning from Past Efforts
DECEMBER 2019 – MAY 2020		 Gather and summarize key policy ideas from past efforts related to housing and community development. Public announcement. Draft key policy ideas to share with the public as a starting point of discussion for input.
Phase 1 - Vetting Key Ideas with the Community
MAY 2020 – MARCH 2021		 The community reflects on the key policy ideas and shares housing needs, challenges, and opportunities to inform the first draft of policy updates. Website, video promotion, traditional media, phone, mail, social media, email blasts, informational presentations, listening sessions, surveys, and digital participation platform. First draft of goals, policies and actions based on input shared by the community.
Phase 2 and 3- Refining Policies Together
APRIL 2021 – MARCH 2022		 The community will reflect on the draft goals, policies, and actions. Two rounds of outreach including focus groups, public hearings, and digital participation platform. Second and third draft goals, policies, and actions.
Phase 4 - Moving Towards Adoption Seek approval of the Housing Element update based on the third draft from elected officials and the State Agency. Public hearings with the Planning Commission and the Board of Supervisors. Adopted update to the Housing Element in compliance with State Law.

Engagement Methods

The image below provides an overview of the 2022 Update engagement methods, from focus groups, to more informal listening sessions, to survey and policy group experts.

map of San Francisco showing engagement neighborhoods

Engagement in Numbers

24  focus groups

65+   community conversations & listening sessions

11   in-language events in Cantonese and Spanish

21   community partners

226   online platform respondents

11   Community ambassadors (HEARD)

17   City agencies and subject matter experts

1631   survey respondents

12   policy group discussions

16   public hearings

Housing Element Outreach and Engagement Principles

Principle Definition
Inclusive representation Engage San Franciscans representing a range of race, ethnicity, socioeconomic status, age, abilities, and housing type and tenure.
Meaningful contribution Ensure each step of outreach has a clear intent and outcome, including how input will be incorporated.
Access to information and participation Use a variety of online and in-person platforms for participation scheduled at times, locations, and in languages accessible to different households. In-person events should be ADA-accessible.
Transparent communication Maintain an updated website to document information and feedback gathered, go back to communities to talk about outcomes and next steps, and use variety of methods to notify communities about upcoming events.

The Housing Element engaged with

Group Details
Residents and Community Members  Their role: Shape the goals, objectives, policies, and actions to ensure an equitable and affordable housing future for San Francisco.
Who they were: Residents, community members, neighborhood organizations, community serving organizations, and homeowner groups.
Interagency Steering Committee Their role: Collaborate in policy development to ensure the Housing Element is successful in achieving its goals and implementing its policies.
Who they are: Local government agencies that provide housing and/or housing services.
Resident Ambassador Group (HEARD) 
Note: this group only participated in Phase I of outreach and engagement.		 Their role: Provide meaningful input, perspective, and opinions for all planning phases; encourage participation from a broad range of residents.
Who they are: Resident ambassadors representing a range of race, ethnicity, socioeconomic statuses, age, abilities, housing styles, and tenure in San Francisco. 
Housing Policy Working Groups
Note: this group was convened in Phases I and II of outreach and engagement.
 		 Their role: Provide their expertise on metrics and policies for the Housing Element; support community engagement.
Who they are: Housing advocacy groups, tenant advocacy groups, homelessness and social service providers, technical experts, and for-profit and non-profit developers.
Government Officials Their role: Holding public hearings for public comment and adopting the Housing Element 2022 Update.
Who they are: Planning Commission and the Board of Supervisors.

About the Housing Element

What is the Housing Element 2022 Update (2022 Update)?

The Housing Element is the updated housing plan for our city, as required by state law every eight years. This is done by creating goals, objectives, policies, and actions informed by public engagement and an analysis of housing needs, potential sites for housing, and the process and programs by which various forms of housing are produced and preserved.

Does the 2022 Update change existing zoning controls for housing development?

No, the 2022 Update does not change where or how housing can be built. The 2022 Update must show the city has sites for future housing projects that will accommodate a certain number of households by income level as mandated by the state. If there are not enough sites, it must describe a program to meet those targets. Given that the 2022 Update Sites Inventory Analysis found insufficient sites to meet state requirements, a rezoning program was included in the plan, and it will be implemented in the first three years of the 2022 Update (2023-2026).

How are racial and social equity addressed in the 2022 Update?

American Indian, Black and other people of color and lower income San Franciscans face disproportionate housing challenges. This is affirmed in the Planning and Historic Preservation Commissions’ adopted resolutions to advance racial and social equity and state law which requires housing elements to address housing discrimination, segregated living patterns, lack of access to opportunity, and affirmatively further fair housing. The 2022 Update is informed by the substantial feedback from those communities and addresses their needs through new policy and actions that advance racial and social equity and meet state law.

How has public input been incorporated into the 2022 Update?

The 2022 Update included three rounds of proactive outreach and engagement with feedback integrated into each draft of the plan. A fourth phase of outreach included receiving and responding to public written comment and comment at hearings, as well as one-on-one meetings with different organizations. Outreach and engagement was inclusive of organizations and residents across the city and had a particular focus on previously underrepresented groups, including Black, indigenous, and other people of color, low-income, LGBTQ+, senior, and other vulnerable communities. Outreach and engagement was conducted through 23 focus groups (including 6 in Cantonese and Spanish), 65+ community group events, 12 discussions with industry experts and leaders, 200+ online comment forms, 1,600+ paper and digital surveys, and frequent informational hearings at the Planning Commission. The Planning Department (department) published summaries and documented changes made between Housing Element drafts 1, 2 and 3 showing how this input was incorporated.

Does the 2022 Update provide funding?

No, the 2022Update does not come with funding for affordable housing or services; however, it articulates needs, policies, priorities, and programs and allows San Francisco to qualify for state housing and transportation funds.

When was the 2022 Update adopted?

The 2022 Update was at the Planning Commission on November 17, 2022 for initiation and in December 15, 2022 for their approval and recommendation. Adoption hearings by the Board of Supervisors took place in January 2023, ending with the adoption and the mayor’s signature on January 31, 2023.

When did the State certify the 2022 Update?

HCD found the Housing Element if full compliance on January 20, 2023.

What are the consequences if an Update is not adopted locally or accepted by the State?

The Update had to be adopted by the city by January 31, 2023, or the city could face fines, loss of access to state and federal funding for affordable housing and transportation, and loss of some control over local housing development until it is adopted.

For more information, read this public memo.

About the Environmental Impact Report (EIR)

What is the Housing Element 2022 Update (2022 Update) EIR?

In conformance with the California Environmental Quality Act (CEQA), the 2022 Update EIR is an informational document that aids the planning and decision-making process by evaluating the anticipated environmental effects that could result from the adoption and implementation of the Update. Where feasible, the EIR identifies mitigation measures to minimize significant environmental impacts. The EIR also studies a reasonable range of alternatives that reduce or avoid significant environmental impacts.

What does the EIR study?

The EIR studies the potential impacts across 20 environmental topics from a possible distribution of future housing development that could occur with the adoption and implementation of the 2022 Update. The department assumes that adoption of the 2022 Update would lead to future actions such as:

  • planning code amendments to increase height limits along transit corridors and to modify density controls in low-density areas that are primarily located on the west, middle, and north sides of the city (Well-resourced Neighborhoods),
  • removal of government constraints on the maintenance, improvement, or development of housing, · designation of housing sustainability districts, and
  • approval of development projects consistent with the goals, policies, and actions of the housing element update.

The department will focus the environmental review of future actions consistent with the 2022 Update, like rezonings, as allowed by law.

Does the EIR study a specific rezoning proposal to implement the 2022 Update?

No, the EIR does not study any specific rezoning proposals. The policies in the 2022 Update are intended to increase housing production and shift a greater share of anticipated growth from the east side of the city to well-resourced areas along transit corridors and low-density areas, which are located primarily on the west and north side of the City. The projected height and density maps included in the EIR represent a hypothetical example of how future housing growth throughout the city could differ under the housing element update in comparison with growth under the existing (2014) housing element. This hypothetical example of future housing growth under the 2022 Update is provided to enable a programmatic analysis of the types and magnitudes of physical environmental impacts that could result from the future implementation of the proposed updated housing element. Any changes to existing land use controls (e.g., rezonings) would require legislative processes, including review and public hearings before the Planning Commission and/or the Board of Supervisors. Two additional examples of possible distribution patterns of future housing growth are included for informational purposes in the Responses to Comments on the EIR. The examples are provided with a figure that includes the same possible distribution as the EIR.

What significant environmental impacts could result from the 2022 Update?

The EIR finds that the 2022 Update would result in significant and unavoidable impacts to the following environmental topics:

  • built environment resources (historic resources)
  • transportation and circulation: construction, transit delay, and loading,
  • noise and vibration: construction and operational noise,
  • air quality: criteria air pollutants and exposure of sensitive receptors to substantial levels of fine particulate matter and toxic air contaminants,
  • wind,
  • shadow, and
  • utilities and service systems (water supply, wastewater facilities).

The EIR identifies mitigation measures to reduce impacts for some of these topics, but not to less-than-significant levels. Refer to CEQA Quick Reference Guide for more details.

What are the EIR alternatives?

The EIR analyzes a reasonable range of alternatives that would avoid or lessen significant impacts while still meeting most the 2022 Update's basic objectives. Five alternatives are evaluated in the EIR:

  • A No Project Alternative – continuation of the existing 2014 Housing Element and existing zoning controls.
  • Eastside Alternative – an enhanced continuation of the existing development pattern in San Francisco, intensifying development on the east side of the City and maintaining lower density in the western neighborhoods.
  • Preservation Alternative – similar to the 2022 Update, but focusing housing growth in well-resourced areas, while reducing impacts on historic resources.
  • Dispersed Growth Alternative – development of small multi-family housing throughout the City. No change to building heights but density controls would be removed.
  • Plan Bay Area 2050 – the long-range integrated transportation and land-use strategy for the Bay Area adopted by the Metropolitan Transportation Agency and the Association of Bay Area Governments that would focus housing growth in the Northeast, Mission, Downtown, South Bayshore, and Richmond planning districts.

What are the future housing growth projections in the EIR based on?

What is the Housing Element 2022 Update (2022 Update) EIR?

In conformance with the California Environmental Quality Act (CEQA), the 2022 Update EIR is an informational document that aids the planning and decision-making process by evaluating the anticipated environmental effects that could result from the adoption and implementation of the Update. Where feasible, the EIR identifies mitigation measures to minimize significant environmental impacts. The EIR also studies a reasonable range of alternatives that reduce or avoid significant environmental impacts.

What does the EIR study?

The EIR studies the potential impacts across 20 environmental topics from a possible distribution of future housing development that could occur with the adoption and implementation of the 2022 Update. The department assumes that adoption of the 2022 Update would lead to future actions such as:

  • planning code amendments to increase height limits along transit corridors and to modify density controls in low-density areas that are primarily located on the west, middle, and north sides of the city (Well-resourced Neighborhoods),
  • removal of government constraints on the maintenance, improvement, or development of housing, · designation of housing sustainability districts, and
  • approval of development projects consistent with the goals, policies, and actions of the housing element update.

The department will focus the environmental review of future actions consistent with the 2022 Update, like rezonings, as allowed by law.

Does the EIR study a specific rezoning proposal to implement the 2022 Update?

No, the EIR does not study any specific rezoning proposals. The policies in the 2022 Update are intended to increase housing production and shift a greater share of anticipated growth from the east side of the city to well-resourced areas along transit corridors and low-density areas, which are located primarily on the west and north side of the City. The projected height and density maps included in the EIR represent a hypothetical example of how future housing growth throughout the city could differ under the housing element update in comparison with growth under the existing (2014) housing element. This hypothetical example of future housing growth under the 2022 Update is provided to enable a programmatic analysis of the types and magnitudes of physical environmental impacts that could result from the future

implementation of the proposed updated housing element. Any changes to existing land use controls (e.g., rezonings) would require legislative processes, including review and public hearings before the Planning Commission and/or the Board of Supervisors. Two additional examples of possible distribution patterns of future housing growth are included for informational purposes in the Responses to Comments on the EIR. The examples are provided with a figure that includes the same possible distribution as the EIR.

What significant environmental impacts could result from the 2022 Update?

The EIR finds that the 2022 Update would result in significant and unavoidable impacts to the following environmental topics:

  • built environment resources (historic resources)
  • transportation and circulation: construction, transit delay, and loading,
  • noise and vibration: construction and operational noise,
  • air quality: criteria air pollutants and exposure of sensitive receptors to substantial levels of fine particulate matter and toxic air contaminants,
  • wind,
  • shadow, and
  • utilities and service systems (water supply, wastewater facilities).

The EIR identifies mitigation measures to reduce impacts for some of these topics, but not to less-than-significant levels. Refer to CEQA Quick Reference Guide for more details.

What are the EIR alternatives?

The EIR analyzes a reasonable range of alternatives that would avoid or lessen significant impacts while still meeting most the 2022 Update's basic objectives. Five alternatives are evaluated in the EIR:

  • A No Project Alternative – continuation of the existing 2014 Housing Element and existing zoning controls.
  • Eastside Alternative – an enhanced continuation of the existing development pattern in San Francisco, intensifying development on the east side of the City and maintaining lower density in the western neighborhoods.
  • Preservation Alternative – similar to the 2022 Update, but focusing housing growth in well-resourced areas, while reducing impacts on historic resources.
  • Dispersed Growth Alternative – development of small multi-family housing throughout the City. No change to building heights but density controls would be removed.
  • Plan Bay Area 2050 – the long-range integrated transportation and land-use strategy for the Bay Area adopted by the Metropolitan Transportation Agency and the Association of Bay Area Governments that would focus housing growth in the Northeast, Mission, Downtown, South Bayshore, and Richmond planning districts.

What are the future housing growth projections in the EIR based on?

In preparing the EIR, the department used data regarding reasonably foreseeable development projects and computer modeling to project the likelihood and pattern of development of future housing growth. The reasonably foreseeable development projects are primarily based on the department’s pipeline, with much of that development occurring outside of well-resourced areas or in the eastern and southern parts of the City. The computer modeling uses variables such as past housing production trends, land use and zoning regulations, and proximity of housing to retail, job, and transit access to job centers. Between 2001 and 2020, the City produced approximately 2,550 housing units per year with a low of approximately 350 units in 2011 to a high of approximately 4,900 housing units in 2016.

Based on this, the EIR analyzes the following net new housing units between 2020 and 2050:

  • 102,000 under the No Project Alternative (average of 3,400 housing units per year).
  • 150,000 under the Housing Element 2022 Update, and Eastside, Preservation, and Dispersed Growth Alternatives (average of 5,000 housing units per year).
  • 188,000 under Plan Bay Area 2050 Alternative (average of 6,250 housing units per year).

About the Implementation

How will the Housing Element 2022 Update (2022 Update) be implemented?

The 2022 Update included quantifiable objectives and implementing programs for the policies and actions in the plan to comply with state requirements. Implementing programs included funding available for production and preservation of affordable housing units, programs and policies to affirmatively further fair housing and repair harms of racial and social discrimination, programs and policies to reduce costs and constraints on housing development and maintenance, programs to help stabilize low- and moderate- income renters and homeowners, and programs to ensure there are sufficient sites to accommodate housing targets, including rezoning.

How were the implementing programs developed?

The department worked with local agencies and organizations to identify programs to implement policies and actions in the plan, including existing and potentially expanded or new programs. By developing an implementation approach that aligns with agencies’ existing workplans and budgets, the city can improve accountability to the public and the state. The department collected information on funding, metrics, timeline, responsible agencies and other key information. Implementing programs will be monitored throughout the 8-year planning cycle and will be re-evaluated as needed throughout to ensure progress.

When will policies and programs be implemented?

Some implementing programs included in the 2022 Update are a continuation of programs and policies from the Housing Element adopted for the last planning period (2014-2022). Other policies and programs are new and will be implemented within a few years. Some are more complicated and may take a longer period of up to five years or more to launch.

When and how would additional sites for housing development be made available?

Per state law, if a city has a shortfall of sites to accommodate its RHNA targets, it must implement a rezoning program to provide sufficient sites within three years of adoption of the deadline to adopt the 2022 Update, that is, by January 31, 2026. The department has started to work with communities and policymakers to develop and adopt a rezoning plan to provide sufficient sites consistent with the goals, policies, and objectives in the 2022 Update. This will include a robust public engagement process to ensure that affected communities have opportunities to learn about the rezoning program and provide input. The rezoning and overall implementation actions will also include a robust legislative process at the Planning Commission and Board of Supervisors. Visit the Expanding Housing Choice webpage to learn more about this rezoning program.

Final Adopted Materials

The Housing Element 2022 Update was adopted by the Board of Supervisors on January 31, 2022. That same day, Mayor London Breed signed the Ordinance into law (Board File No. 230001, Ordinance No. 010-23).

Approval by the Planning Commission

Approved at the hearing on December 15, 2022. After Planning Commission approval, the draft amendments are forwarded the proposal to the Board of Supervisors for consideration of adoption.

EIR Certification and Initiation by the Planning Commission

The Housing Element 2022 Update Environmental Impact Report (EIR) was certified, and the process of approval initiated at the Planning Commission on November 17, 2022. An “initiation” hearing is a public announcement of the Planning Commission’s intention to consider adoption.

Informational

An informational hearing is an overview presentation of the work to date, including the relationship to issues of primary concern to the respective body.

Planning Commission on December 8, 2022

Board of Supervisors on November 15, 2022

Planning Commission on November 3, 2022

Planning Commission on October 20, 2022

Planning Commission on September 29, 2022

Historic Preservation Commission on April 20, 2022

Planning Commission on April 07, 2022

Historic Preservation Commission on February 2, 2022

Planning Commission on January 27, 2022

Historic Preservation Commission on October 20, 2021

Planning Commission on October 14, 2021

Youth Commission on July 06, 2021

Planning Commission on April 22, 2021

Human Rights Commission on March 11, 2021

Planning Commission (Project Launch) on May 28, 2020

HCD Correspondence